Federal Reserve Review of Monetary Policy Strategy, Tools, and Communications: Some Preliminary Views

(Speech by Governor Lael Brainard, at the Presentation of the 2019 William F. Butler Award New York Association for Business Economics, New York, New York)

It is a pleasure to be here with you. It is an honor to join the 45 outstanding economic researchers and practitioners who are past recipients of the William F. Butler Award. I want to express my deep appreciation to the New York Association for Business Economics (NYABE) and NYABE President Julia Coronado.

I will offer my preliminary views on the Federal Reserve’s review of its monetary policy strategy, tools, and communications after first touching briefly on the economic outlook. These remarks represent my own views. The framework review is ongoing and will extend into 2020, and no conclusions have been reached at this time.1

Outlook and Policy

There are good reasons to expect the economy to grow at a pace modestly above potential over the next year or so, supported by strong consumers and a healthy job market, despite persistent uncertainty about trade conflict and disappointing foreign growth. Recent data provide some reassurance that consumer spending continues to expand at a healthy pace despite some slowing in retail sales. Consumer sentiment remains solid, and the employment picture is positive. Housing seems to have turned a corner and is poised for growth following several weak quarters.

Business investment remains downbeat, restrained by weak growth abroad and trade conflict. But there is little sign so far that the softness in trade, manufacturing, and business investment is affecting consumer spending, and the effect on services has been limited.

Employment remains strong. The employment-to-population ratio for prime-age adults has moved up to its pre-recession peak, and the three-month moving average of the unemployment rate is near a 50-year low.2 Monthly job gains remain above the pace needed to absorb new entrants into the labor force despite some slowing since last year. And initial claims for unemployment insurance—a useful real-time indicator historically—remain very low despite some modest increases.

Data on inflation have come in about as I expected, on balance, in recent months. Inflation remains below the Federal Reserve’s 2 percent symmetric objective, which has been true for most of the past seven years. The price index for core personal consumption expenditures (PCE), which excludes food and energy prices and is a better indicator of future inflation than overall PCE prices, increased 1.7 percent over the 12 months through September.

Foreign growth remains subdued. While there are signs that the decline in euro-area manufacturing is stabilizing, the latest indicators on economic activity in China remain sluggish, and the news in Japan and in many emerging markets has been disappointing. Overall, it appears third-quarter foreign growth was weak, and the latest indicators point to little improvement in the fourth quarter.

More broadly, the balance of risks remains to the downside, although there has been some improvement in risk sentiment in recent weeks. The risk of a disorderly Brexit in the near future has declined significantly, and there is some hope that a U.S.–China trade truce could avert additional tariffs. While risks remain, financial market indicators suggest market participants see a diminution in such risks, and probabilities of recessions from models using market data have declined.

The baseline is for continued moderate expansion, a strong labor market, and inflation moving gradually to our symmetric 2 percent objective. The Federal Open Market Committee (FOMC) has taken significant action to provide insurance against the risks associated with trade conflict and weak foreign growth against a backdrop of muted inflation. Since July, the Committee has lowered the target range for the federal funds rate by ¾ percentage point, to the current range of 1½ to 1¾ percent. It will take some time for the full effect of this accommodation to work its way through economic activity, the labor market, and inflation. I will be watching the data carefully for signs of a material change to the outlook that could prompt me to reassess the appropriate path of policy.

Review

The Federal Reserve is conducting a review of our monetary policy strategy, tools, and communications to make sure we are well positioned to advance our statutory goals of maximum employment and price stability.3 Three key features of today’s new normal call for a reassessment of our monetary policy strategy: the neutral rate is very low here and abroad, trend inflation is running below target, and the sensitivity of price inflation to resource utilization is very low.4

First, trend inflation is below target.5 Underlying trend inflation appears to be running a few tenths below the Committee’s symmetric 2 percent objective, according to various statistical filters. This raises the risk that households and businesses could come to expect inflation to run persistently below our target and change their behavior in a way that reinforces that expectation. Indeed, with inflation having fallen short of 2 percent for most of the past seven years, inflation expectations may have declined, as suggested by some survey-based measures of long-run inflation expectations and by market-based measures of inflation compensation.

Second, the sensitivity of price inflation to resource utilization is very low. This is what economists mean when they say that the Phillips curve is flat. A flat Phillips curve has the important advantage of allowing employment to continue expanding for longer without generating inflationary pressures, thereby providing greater opportunities to more people. But it also makes it harder to achieve our 2 percent inflation objective on a sustained basis when inflation expectations have drifted below 2 percent.

Third, the long-run neutral rate of interest is very low, which means that we are likely to see more frequent and prolonged episodes when the federal funds rate is stuck at its effective lower bound (ELB).6 The neutral rate is the level of the federal funds rate that would keep the economy at full employment and 2 percent inflation if no tailwinds or headwinds were buffeting the economy. A variety of forces have likely contributed to a decline in the neutral rate, including demographic trends in many large economies, some slowing in the rate of productivity growth, and increases in the demand for safe assets. When looking at the Federal Reserve’s Summary of Economic Projections (SEP), it is striking that the Committee’s median projection of the longer-run federal funds rate has moved down from 4¼ percent to 2½ percent over the past seven years.7 A similar decline can be seen among private forecasts.8 This decline means the conventional policy buffer is likely to be only about half of the 4½ to 5 percentage points by which the FOMC has typically cut the federal funds rate to counter recessionary pressures over the past five decades.

This large loss of policy space will tend to increase the frequency or length of periods when the policy rate is pinned at the ELB, unemployment is elevated, and inflation is below target.9 In turn, the experience of frequent or extended periods of low inflation at the ELB risks eroding inflation expectations and further compressing the conventional policy space. The risk is a downward spiral where conventional policy space gets compressed even further, the ELB binds even more frequently, and it becomes increasingly difficult to move inflation expectations and inflation back up to target. While consumers and businesses might see very low inflation as having benefits at the individual level, at the aggregate level, inflation that is too low can make it very challenging for monetary policy to cut the short-term nominal interest rate sufficiently to cushion the economy effectively.10

The experience of Japan and of the euro area more recently suggests that this risk is real. Indeed, the fact that Japan and the euro area are struggling with this challenging triad further complicates our task, because there are important potential spillovers from monetary policy in other major economies to our own economy through exchange rate and yield curve channels.11

In light of the likelihood of more frequent episodes at the ELB, our monetary policy review should advance two goals. First, monetary policy should achieve average inflation outcomes of 2 percent over time to re-anchor inflation expectations at our target. Second, we need to expand policy space to buffer the economy from adverse developments at the ELB.

Achieving the Inflation Target

The apparent slippage in trend inflation below our target calls for some adjustments to our monetary policy strategy and communications. In this context and as part of our review, my colleagues and I have been discussing how to better anchor inflation expectations firmly at our objective. In particular, it may be helpful to specify that policy aims to achieve inflation outcomes that average 2 percent over time or over the cycle. Given the persistent shortfall of inflation from its target over recent years, this would imply supporting inflation a bit above 2 percent for some time to compensate for the period of underperformance.

One class of strategies that has been proposed to address this issue are formal “makeup” rules that seek to compensate for past inflation deviations from target. For instance, under price-level targeting, policy seeks to stabilize the price level around a constant growth path that is consistent with the inflation objective.12 Under average inflation targeting, policy seeks to return the average of inflation to the target over some specified period.13

To be successful, formal makeup strategies require that financial market participants, households, and businesses understand in advance and believe, to some degree, that policy will compensate for past misses. I suspect policymakers would find communications to be quite challenging with rigid forms of makeup strategies, because of what have been called time-inconsistency problems. For example, if inflation has been running well below—or above—target for a sustained period, when the time arrives to maintain inflation commensurately above—or below—2 percent for the same amount of time, economic conditions will typically be inconsistent with implementing the promised action. Analysis also suggests it could take many years with a formal average inflation targeting framework to return inflation to target following an ELB episode, although this depends on difficult-to-assess modeling assumptions and the particulars of the strategy.14

Thus, while formal average inflation targeting rules have some attractive properties in theory, they could be challenging to implement in practice. I prefer a more flexible approach that would anchor inflation expectations at 2 percent by achieving inflation outcomes that average 2 percent over time or over the cycle. For instance, following five years when the public has observed inflation outcomes in the range of 1½ to 2 percent, to avoid a decline in expectations, the Committee would target inflation outcomes in a range of, say, 2 to 2½ percent for the subsequent five years to achieve inflation outcomes of 2 percent on average overall. Flexible inflation averaging could bring some of the benefits of a formal average inflation targeting rule, but it would be simpler to communicate. By committing to achieve inflation outcomes that average 2 percent over time, the Committee would make clear in advance that it would accommodate rather than offset modest upward pressures to inflation in what could be described as a process of opportunistic reflation.15

Policy at the ELB

Second, the Committee is examining what monetary policy tools are likely to be effective in providing accommodation when the federal funds rate is at the ELB.16 In my view, the review should make clear that the Committee will actively employ its full toolkit so that the ELB is not an impediment to providing accommodation in the face of significant economic disruptions.

The importance and challenge of providing accommodation when the policy rate reaches the ELB should not be understated. In my own experience on the international response to the financial crisis, I was struck that the ELB proved to be a severe impediment to the provision of policy accommodation initially. Once conventional policy reached the ELB, the long delays necessitated for policymakers in nearly every jurisdiction to develop consensus and take action on unconventional policy sapped confidence, tightened financial conditions, and weakened recovery. Economic conditions in the euro area and elsewhere suffered for longer than necessary in part because of the lengthy process of building agreement to act decisively with a broader set of tools.

Despite delays and uncertainties, the balance of evidence suggests forward guidance and balance sheet policies were effective in easing financial conditions and providing accommodation following the global financial crisis.17 Accordingly, these tools should remain part of the Committee’s toolkit. However, the quantitative asset purchase policies that were used following the crisis proved to be lumpy both to initiate at the ELB and to calibrate over the course of the recovery. This lumpiness tends to create discontinuities in the provision of accommodation that can be costly. To the extent that the public is uncertain about the conditions that might trigger asset purchases and how long the purchases would be sustained, it undercuts the efficacy of the policy. Similarly, significant frictions associated with the normalization process can arise as the end of the asset purchase program approaches.

For these reasons, I have been interested in exploring approaches that expand the space for targeting interest rates in a more continuous fashion as an extension of our conventional policy space and in a way that reinforces forward guidance on the policy rate.18 In particular, there may be advantages to an approach that caps interest rates on Treasury securities at the short-to-medium range of the maturity spectrum—yield curve caps—in tandem with forward guidance that conditions liftoff from the ELB on employment and inflation outcomes.

To be specific, once the policy rate declines to the ELB, this approach would smoothly move to capping interest rates on the short-to-medium segment of the yield curve. The yield curve ceilings would transmit additional accommodation through the longer rates that are relevant for households and businesses in a manner that is more continuous than quantitative asset purchases. Moreover, if the horizon on the interest rate caps is set so as to reinforce forward guidance on the policy rate, doing so would augment the credibility of the yield curve caps and thereby diminish concerns about an open-ended balance sheet commitment. In addition, once the targeted outcome is achieved, and the caps expire, any securities that were acquired under the program would roll off organically, unwinding the policy smoothly and predictably. This is important, as it could potentially avoid some of the tantrum dynamics that have led to premature steepening at the long end of the yield curve in several jurisdictions.

Forward guidance on the policy rate will also be important in providing accommodation at the ELB. As we saw in the United States at the end of 2015 and again toward the second half of 2016, there tends to be strong pressure to “normalize” or lift off from the ELB preemptively based on historical relationships between inflation and employment. A better alternative would have been to delay liftoff until we had achieved our targets. Indeed, recent research suggests that forward guidance that commits to delay the liftoff from the ELB until full employment and 2 percent inflation have been achieved on a sustained basis—say over the course of a year—could improve performance on our dual-mandate goals.19

To reinforce this commitment, the forward guidance on the policy rate could be implemented in tandem with yield curve caps. For example, as the federal funds rate approaches the ELB, the Committee could commit to refrain from lifting off the ELB until full employment and 2 percent inflation are sustained for a year. Based on its assessment of how long this is likely take, the Committee would then commit to capping rates out the yield curve for a period consistent with the expected horizon of the outcome-based forward guidance. If the outlook shifts materially, the Committee could reassess how long it will take to get inflation back to 2 percent and adjust policy accordingly. One benefit of this approach is that the forward guidance and the yield curve ceilings would reinforce each other.

The combination of a commitment to condition liftoff on the sustained achievement of our employment and inflation objectives with yield curve caps targeted at the same horizon has the potential to work well in many circumstances. For very severe recessions, such as the financial crisis, such an approach could be augmented with purchases of 10-year Treasury securities to provide further accommodation at the long end of the yield curve. Presumably, the requisite scale of such purchases—when combined with medium-term yield curve ceilings and forward guidance on the policy rate—would be relatively smaller than if the longer-term asset purchases were used alone.

Monetary Policy and Financial Stability

Before closing, it is important to recall another important lesson of the financial crisis: The stability of the financial system is important to the achievement of the statutory goals of full employment and 2 percent inflation. In that regard, the changes in the macroeconomic environment that underlie our monetary policy review may have some implications for financial stability. Historically, when the Phillips curve was steeper, inflation tended to rise as the economy heated up, which prompted the Federal Reserve to raise interest rates. In turn, the interest rate increases would have the effect of tightening financial conditions more broadly. With a flat Phillips curve, inflation does not rise as much as resource utilization tightens, and interest rates are less likely to rise to restrictive levels. The resulting lower-for-longer interest rates, along with sustained high rates of resource utilization, are conducive to increasing risk appetite, which could prompt reach-for-yield behavior and incentives to take on additional debt, leading to financial imbalances as an expansion extends.

To the extent that the combination of a low neutral rate, a flat Phillips curve, and low underlying inflation may lead financial stability risks to become more tightly linked to the business cycle, it would be preferable to use tools other than tightening monetary policy to temper the financial cycle. In particular, active use of macroprudential tools such as the countercyclical buffer is vital to enable monetary policy to stay focused on achieving maximum employment and average inflation of 2 percent on a sustained basis.

Conclusion

The Federal Reserve’s commitment to adapt our monetary policy strategy to changing circumstances has enabled us to support the U.S. economy throughout the expansion, which is now in its 11th year. In light of the decline in the neutral rate, low trend inflation, and low sensitivity of inflation to slack as well as the consequent greater frequency of the policy rate being at the effective lower bound, this is an important time to review our monetary policy strategy, tools, and communications in order to improve the achievement of our statutory goals. I have offered some preliminary thoughts on how we could bolster inflation expectations by achieving inflation outcomes of 2 percent on average over time and, when policy is constrained by the ELB, how we could combine forward guidance on the policy rate with caps on the short-to-medium segment of the yield curve to buffer the economy against adverse developments.

  1. I am grateful to Ivan Vidangos of the Federal Reserve Board for assistance in preparing this text. These remarks represent my own views, which do not necessarily represent those of the Federal Reserve Board or the Federal Open Market Committee. (return to text)
  2. Claudia Sahm shows that a ½ percentage point increase in the three-month moving average of the unemployment rate relative to the previous year’s low is a good real-time recession indicator. See Claudia Sahm (2019), “Direct Stimulus Payments to Individuals” [archived PDF], Policy Proposal, The Hamilton Project at the Brookings Institution (Washington: THP, May 16). (return to text)
  3. Information about the review of monetary policy strategy, tools, and communications is available on the Board’s website. Also see Richard H. Clarida (2019), “The Federal Reserve’s Review of Its Monetary Policy Strategy, Tools, and Communication Practices” [archived PDF], speech delivered at the 2019 U.S. Monetary Policy Forum, sponsored by the Initiative on Global Markets at the University of Chicago Booth School of Business, New York, February 22; and Jerome H. Powell (2019), “Monetary Policy: Normalization and the Road Ahead” [archived PDF] speech delivered at the 2019 SIEPR Economic Summit, Stanford Institute of Economic Policy Research, Stanford, Calif., March 8. (return to text)
  4. See Lael Brainard (2016), “The ‘New Normal’ and What It Means for Monetary Policy” [archived PDF] speech delivered at the Chicago Council on Global Affairs, Chicago, September 12. (return to text)
  5. See Lael Brainard (2017), “Understanding the Disconnect between Employment and Inflation with a Low Neutral Rate” [archived PDF], speech delivered at the Economic Club of New York, September 5; and James H. Stock and Mark W. Watson (2007), “Why Has U.S. Inflation Become Harder to Forecast?” [archived PDF], Journal of Money, Credit and Banking, vol. 39 (s1, February), pp. 3–33. (return to text)
  6. See Lael Brainard (2015), “Normalizing Monetary Policy When the Neutral Interest Rate Is Low” [archived PDF] speech delivered at the Stanford Institute for Economic Policy Research, Stanford, Calif., December 1. (return to text)
  7. The projection materials for the Federal Reserve’s SEP are available on the Board’s website. (return to text)
  8. For example, the Blue Chip Consensus long-run projection for the three-month Treasury bill has declined from 3.6 percent in October 2012 to 2.4 percent in October 2019. See Wolters Kluwer (2019), Blue Chip Economic Indicators, vol. 44 (October 10); and Wolters Kluwer (2012), Blue Chip Economic Indicators, vol. 37 (October 10). (return to text)
  9. See Michael Kiley and John Roberts (2017), “Monetary Policy in a Low Interest Rate World” [archived PDF], Brookings Papers on Economic Activity, Spring, pp. 317–72; Eric Swanson (2018), “The Federal Reserve Is Not Very Constrained by the Lower Bound on Nominal Interest Rates” [archived PDF] NBER Working Paper Series 25123 (Cambridge, Mass.: National Bureau of Economic Research, October); and Hess Chung, Etienne Gagnon, Taisuke Nakata, Matthias Paustian, Bernd Schlusche, James Trevino, Diego Vilán, and Wei Zheng (2019), “Monetary Policy Options at the Effective Lower Bound: Assessing the Federal Reserve’s Current Policy Toolkit” [archived PDF], Finance and Economics Discussion Series 2019-003 (Washington: Board of Governors of the Federal Reserve System, January). (return to text)
  10. The important observation that some consumers and businesses see low inflation as having benefits emerged from listening to a diverse range of perspectives, including representatives of consumer, labor, business, community, and other groups during the Fed Listens events; for details, see this page. (return to text)
  11. See Lael Brainard (2017), “Cross-Border Spillovers of Balance Sheet Normalization” [archived PDF] speech delivered at the National Bureau of Economic Research’s Monetary Economics Summer Institute, Cambridge, Mass., July 13. (return to text)
  12. See, for example, James Bullard (2018), “A Primer on Price Level Targeting in the U.S.” [archived PDF], a presentation before the CFA Society of St. Louis, St. Louis, Mo., January 10. (return to text)
  13. See, for example, Lars Svensson (2019), “Monetary Policy Strategies for the Federal Reserve” [archived PDF] presented at “Conference on Monetary Policy Strategy, Tools and Communication Practices,” sponsored by the Federal Reserve Bank of Chicago, Chicago, June 5. (return to text)
  14. See Board of Governors of the Federal Reserve System (2019), “Minutes of the Federal Open Market Committee, September 17–18, 2019,” press release, October 9; and David Reifschneider and David Wilcox (2019), “Average Inflation Targeting Would Be a Weak Tool for the Fed to Deal with Recession and Chronic Low Inflation” [archived PDF] Policy Brief PB19-16 (Washington: Peterson Institute for International Economics, November). (return to text)
  15. See Janice C. Eberly, James H. Stock, and Jonathan H. Wright (2019), “The Federal Reserve’s Current Framework for Monetary Policy: A Review and Assessment” [archived PDF] paper presented at “Conference on Monetary Policy Strategy, Tools and Communication Practices,” sponsored by the Federal Reserve Bank of Chicago, Chicago, June 4. (return to text)
  16. See Board of Governors of the Federal Reserve System (2019), “Minutes of the Federal Open Market Committee, July 31–August 1, 2018” [archived PDF] press release, August 1; and Board of Governors (2019), “Minutes of the Federal Open Market Committee, October 29–30, 2019” [archived PDF] press release, October 30. (return to text)
  17. For details on purchases of securities by the Federal Reserve, see this page. For a discussion of forward guidance, see this page. See, for example, Simon Gilchrist and Egon Zakrajšek (2013), “The Impact of the Federal Reserve’s Large-Scale Asset Purchase Programs on Corporate Credit Risk,” Journal of Money, Credit and Banking, vol. 45, (s2, December), pp. 29–57; Simon Gilchrist, David López-Salido, and Egon Zakrajšek (2015), “Monetary Policy and Real Borrowing Costs at the Zero Lower Bound,” American Economic Journal: Macroeconomics, vol. 7 (January), pp. 77–109; Jing Cynthia Wu and Fan Dora Xia (2016), “Measuring the Macroeconomic Impact of Monetary Policy at the Zero Lower Bound,” Journal of Money, Credit and Banking, vol. 48 (March–April), pp. 253–91; and Stefania D’Amico and Iryna Kaminska (2019), “Credit Easing versus Quantitative Easing: Evidence from Corporate and Government Bond Purchase Programs” [archived PDF], Bank of England Staff Working Paper Series 825 (London: Bank of England, September). (return to text)
  18. See Board of Governors of the Federal Reserve System (2010), “Strategies for Targeting Interest Rates Out the Yield Curve,” memorandum to the Federal Open Market Committee, October 13, available at this page; and Ben Bernanke (2016), “What Tools Does The Fed Have Left? Part 2: Targeting Longer-Term Interest Rates” [archived PDF] blog post, Brookings Institution, March 24. (return to text)
  19. See Ben Bernanke, Michael Kiley, and John Roberts (2019), “Monetary Policy Strategies for a Low-Rate Environment” [archived PDF], Finance and Economics Discussion Series 2019-009 (Washington: Board of Governors of the Federal Reserve System) and Chung and others, “Monetary Policy Options at the Effective Lower Bound,” in note 9. (return to text)

Education and Wittgenstein “Language Games”

It is instructive for a student to get a grip on the whole question of “language games” à la Wittgenstein, who says that these “games” (i.e., ambiguities) are central to thinking in general and thinking about philosophy in particular.

Let’s make up our own example and step back from the meaning of the preposition “in.”

The comb is in my back pocket has nothing to do with the “in” of “he’s in a good mood” or “he’s in a hurry” or “he’s in a jam or pickle” or “he’s in trouble.” Furthermore, in modern deterministic neuroscience language, a good mood is a footnote to brain and blood chemicals so that means that a good mood is in you via chemicals and not you in it.

Does the word “jam” here mean difficulty or somehow the condiment called jam? You don’t know and can never without more information (i.e., meaningful context).

Imagine we take a time machine and are standing in front of the home of Charles Dickens in London in his time say in the 1840s. They say he’s working on a new novel called Oliver Twist.

Someone says: a novel by Dickens is a kind of “fictional universe.” Shall we say that because Dickens is in his home (at home) in London (though in London is itself confusing since London as a city is not like a pocket to a comb or wallet) his fictional universe is “in” the universe which might be a multiverse according to current cosmological speculations? That’s not what we mean. The fictional universe of Dickens is a shared cultural abstraction involving his stories, characters, people absorbing his tales, his mind and our mind, books and discussions. A fictional universe is as “weird” as the other universe. The preposition “in” does not begin to capture what’s going on which is socio-cultural and not “physicalistic.”

We begin to intuit that everyday language which we use and handle as the most obvious thing in the world in constant use, is completely confusing once you look at it more clearly.

Einstein’s friend at Princeton, Kurt Gödel, looked into language as a logical phenomenon and concluded that it’s entirely puzzling that two people could actually speak and understand one another given the ambiguities and open-endedness of language.

A language-game (German: Sprachspiel) is a philosophical concept developed by Ludwig Wittgenstein, referring to simple examples of language use and the actions into which the language is woven. Wittgenstein argued that a word or even a sentence has meaning only as a result of the “rule” of the “game” being played. Depending on the context, for example, the utterance “Water!” could be an order, the answer to a question, or some other form of communication.

In his work, Philosophical Investigations (1953), Ludwig Wittgenstein regularly referred to the concept of language-games. Wittgenstein rejected the idea that language is somehow separate and corresponding to reality, and he argued that concepts do not need clarity for meaning. Wittgenstein used the term “language-game” to designate forms of language simpler than the entirety of a language itself, “consisting of language and the actions into which it is woven” and connected by family resemblance (German: Familienähnlichkeit).

The concept was intended “to bring into prominence the fact that the speaking of language is part of an activity, or a form of life,” which gives language its meaning.

Wittgenstein develops this discussion of games into the key notion of a “language-game.”

Gödel saw that language has deep built-in ambiguities which were as puzzling as math and logic ones:

Gödel’s (died in 1978) incompleteness theorems are two theorems of mathematical logic that demonstrate the inherent limitations of every formal axiomatic system capable of modeling basic arithmetic. These results, published by Kurt Gödel in 1931, are important both in mathematical logic and in the philosophy of mathematics.

Take any simple sentence: say, “men now count.”

Without a human context of meaning, how would you ever decide if this means count in the sense of numeracy (one apple, two apples, etc.) or something entirely from another domain (i.e. males got the vote in a certain country and now “count” in that sense).

When you say, “count me in” or count me out,” how does that make any sense without idiomatic language exposure?

If you look at all the meanings of “count” in the dictionary and how many set phrases or idioms involve the word “count,” you will immediately get the sense that without a human “life-world” (to use a Husserl phrase), you could never be sure of any message or sentence at all involving such a fecund word.

One task of real education is to put these difficulties on the student’s plate and not avoid them.

Linguistics as such is not what’s at issue but rather a “meta-intelligent” sense of language, written or spoken as highly mysterious with or without the research into vocal cords, language genes (FOXP2, say) or auditory science and the study of palates or glottal stops and fricatives, grammars and syntax.

Seeing this promotes deep education (i.e., where understanding touches holism in an enchanting way).

Reports of Rising Police-Society Conflict in China

Interview with Suzanne Scoggins (November 25, 2019)

China is facing a rising tide of conflict between the nation’s police officers and the public. While protest events receive considerable media attention, lower-profile conflicts between police officers and residents also make their way onto the internet, shaping perceptions of the police. The ubiquity of live events streamed on the internet helps illuminate the nature of state–society conflict in China and the challenges faced by local law enforcement.

Simone McGuinness spoke with Suzanne Scoggins, a fellow with the National Asia Research Program (NARP), about the reports of rising police–society conflict in China. Dr. Scoggins discusses how the Chinese Communist Party has responded to the upsurge, what channels Chinese citizens are utilizing to express their concerns, and what the implications are for the rest of the world.

What is the current state of police-society relations in China?

Reports of police violence have been on the rise, although this does not necessarily mean that violence is increasing. It does, however, mean that the media is more willing to report violence and that more incidents of violence are appearing on social media.

What we can now study is the nature of that violence—some are big events such as riots or attacks against the police, but there are also smaller events. For example, we see reports of passengers on trains who get into arguments with transit police. They may fight because one of the passengers is not in the right seat or is carrying something prohibited. Rather than complying with the officer, the passenger ends up getting into some sort of violent altercation. This kind of violence is typically being captured by cellphone cameras, and sometimes it makes the news.

The nature of the conflict matters. If somebody is on a train and sitting in a seat that they did not pay for, then it is usually obvious to the people reading about or watching the incident that the civilian is at fault. But if it is chengguan (城管, “city administration”) telling an elderly woman to stop selling her food on the street and the chengguan becomes violent, then public perceptions may be very different. It is that second type of violence that can be threatening to the state. The public’s response to the type of conflict can vary considerably.

What are the implications for China as a whole?

Regarding what this means for China, it’s not good for the regime to sustain this kind of conflict between street-level officers or state agents and the public. It lowers people’s trust in the agents of the government, and people may assume that the police cannot enforce public security. There are many state agents who might be involved in a conflict, such as the chengguan, the xiejing (auxiliary officer), or the official police. The type of agent almost doesn’t matter because the uniforms often look similar.

When information goes up online of state agents behaving poorly, it makes the state a little more vulnerable. Even people who were not at the event might see it on social media or in the news and think, “Oh, this is happening in my community, or in my province, or across the nation.” This violates public expectations about how the police or other state agents should act. People should be able to trust the police and go to them when they have problems.

How has the Chinese government responded to the increase in reporting violence?

There is a twofold approach. The first is through censorship. When negative videos go up online or when the media reports an incident, the government will go in and take it down. We see this over time. Even while collecting my research, some of the videos that were initially available online are no longer accessible simply because they have been censored. The government is removing many different types of content, not only violence. Censors are also interested in removing any sort of misinformation that might spread on social media.

If step one is to take the video or report down, step two is to counteract any negative opinion by using police propaganda. This is also referred to as “public relations,” and the goal is to present a better image of the police. Recently, the Ministry of Public Security put a lot of money and resources into their social media presence. Many police stations have a social media account on WeChat or Weibo (微博, “microblogging”) and aim to present a more positive, friendly image of the police. The ministry also teamed up with CCTV to produce television content. This has been going on for some time, but recently shows have become more sophisticated.

There is one program, for example, called Police Training Camp. It is a reality show where police officers are challenged with various tasks, and the production is very glossy. The ministry also produces other sorts of specials featuring police who are out in the field helping people. It shows the police officers working really long shifts, interacting positively with the public, and really making a difference in people’s lives. In this way, the government is counteracting negative opinions about police violence or misconduct.

In general, I will say that it is difficult for people in any society to get justice with police officers because of the way legal systems are structured and the power police hold in local government politics. In China, one of the things people are doing beyond reaching out to local governments or pursuing mediation is calling an official hotline.

This is a direct channel to the Ministry of Public Security, and all these calls are reviewed. There is not a whole lot that citizens can do about specific corruption claims. But if somebody has a particular goal, then the hotline is slightly more effective because it allows citizens to alert the ministry. However, many people do not know about the hotline, so the ministry is trying to increase awareness and also help staff the call center so that it can more effectively field calls.

As for how much relief people feel when they use these channels, this depends on what their goal is. If the goal is to get somebody fired, then the hotline may not work. But if someone is looking to air their grievances, then it may be helpful.

What are the implications of increased police-society conflict in China for the rest of the world? What can the United States or other countries do to improve the situation?

These are really sticky issues that are difficult to solve. When discussing police–society conflict, it is important to step back and think about who the police are—the enforcement agents of the state. So by their very nature, there will be conflict between police and society, and that is true in every country. In China, it really depends on where and what type of police climate we are talking about.

Xinjiang, for instance, has a very different police climate than other regions in China. There is a different type of policing and police presence. Chinese leaders certainly do not want any international intervention in Xinjiang. They see this as an internal issue. While some governments in Europe and the United States might want to intervene, that is going to be a nonstarter for China.

As for police problems more generally, I would say that if China is able to reduce some of the police–society conflict in other areas of the country, then this is good for the international community because it leads to a more stable government. We also know that there is a fair amount of international cooperation between police groups. China has police liaisons that travel and learn about practices and technology in different countries. The police in these groups attend conferences and take delegates abroad.

There are also police delegations from other nations that go to China to learn about and exchange best practices. But that work will not necessarily address the underlying issues that we see in a lot of the stations scattered throughout China outside the big cities like Beijing (北京) or Shanghai (上海). Those are the areas with insufficient training or manpower. Those issues must be addressed internally by the Ministry of Public Security.

How is the Chinese government improving its policing capabilities?

Recently, the ministry has tried to overcome manpower and other ground-level policing problems by using surveillance cameras and artificial intelligence. Networks of cameras are appearing all over the country, and police are using body cameras for recording interactions with the public. This type of surveillance is not just in large cities but also in smaller ones. Of course, it is not enough to just put the cameras up—you also need to train officers to use that technology properly. This process takes time, but it is one way that the ministry hopes to overcome on-the-ground problems such as the low number of police per capita.

How might the Hong Kong protests influence or change policing tactics in China?

The situation in Hong Kong is unlikely to change policing tactics in China, which are generally more aggressive in controlling protests than most of what we have seen thus far in Hong Kong. It is more likely that things will go in the other direction, with mainland tactics being used in Hong Kong, especially if we continue to observe increased pressure to bring the protestors in check.

Suzanne Scoggins is an Assistant Professor of Political Science at Clark University. She is also a 2019 National Asia Research Program (NARP) Fellow. Dr. Scoggins holds a Ph.D. in Political Science from the University of California, Berkeley, and her book manuscript Policing in the Shadow of Protest is forthcoming from Cornell University Press. Her research has appeared in Comparative Politics, The China Quarterly, Asian Survey, PS: Political Science and Politics, and the China Law and Society Review.

This interview was conducted by Simone McGuinness, the Public Affairs Intern at NBR.

Novels as Another University: Joseph Conrad

One can say that the first wave of imperial “neocons” was not the group that got the U.S. into the Iraq War (2003) but the group described by Warren Zimmerman in his classic book on the rise of the American Empire from the 1890s onwards:

First Great Triumph

How Five Americans Made Their Country a World Power.

By Warren Zimmermann.

Illustrated. 562 pp. New York: Farrar, Straus & Giroux

“Americans like to pretend that they have no imperial past,” Warren Zimmermann tells us in First Great Triumph: How Five Americans Made Their Country a World Power. But they do.

The United States had been expanding its borders from the moment of its birth, though its reach had been confined to the North American continent until 1898, when American soldiers and sailors joined Cuban and Filipino rebels in a successful war against Spain. When the war was won, the United States acquired a “protectorate” in Cuba and annexed Hawaii, the Philippine Islands, Guam, Puerto Rico and Hawaii. “In 15 weeks,” Zimmermann notes, “the United States had gained island possessions on both the Atlantic and Pacific sides of its continental mass. It had put under its protection and control more than 10 million people: whites, blacks, Hispanics, Indians, Polynesians, Chinese, Japanese and the polyethnic peoples of the Philippine archipelago.”

John Hay, at the time the American ambassador to Britain, writing to his friend Theodore Roosevelt in Cuba, referred to the war against Spain as “a splendid little war, begun with the highest motives, carried on with magnificent intelligence and spirit, favored by that Fortune which loves the brave.” He hoped that the war’s aftermath would be concluded “with that fine good nature, which is, after all, the distinguishing trait of the American character.” More than a century later, we are still asking ourselves just how splendid that little war and its consequences really were.

Zimmermann, a career diplomat and a former United States ambassador to Yugoslavia, begins his brilliantly readable book about the war and its aftermath with biographical sketches of the five men — Alfred T. Mahan, Theodore Roosevelt, Henry Cabot Lodge, John Hay and Elihu Root — who played a leading role in making “their country a world power.”

Ironically, it turns out that any reader of Joseph Conrad’s (died in 1924) famous novel Nostromo from 1904 would have encountered the “manifesto” of the American Empire, very clearly enunciated by one of the characters in the novel:

“Time itself has got to wait on the greatest country in the whole of God’s universe. We shall be giving the word for everything; industry, trade, law, journalism, art, politics and religion, from Cape Horn clear over to Smith’s Sound (i.e., Canada/Greenland), and beyond too, if anything worth taking hold of turns up at the North Pole. And then we shall have the leisure to take in hand the outlying islands and continents of the earth.

“We shall run the world’s business whether the world likes it or not. The world can’t help it—and neither can we, I guess.”

Joseph Conrad, Nostromo, Penguin Books, 2007, pages 62/63

The political stances of Conrad which seem so denunciatory of imperialism here in Nostromo seem very disrespectful of Africans in his Heart of Darkness as Chinua Achebe (Nigerian novelist, author of Things Fall Apart) and other Africans have shown and decried. Thus one sees layer upon layer of contradiction both in American empire-mongering and Conrad’s anticipation of it in his novel Nostromo.

FRBSF Economic Letter: Involuntary Part-Time Work a Decade after the Recession

by Marianna Kudlyak

Involuntary part-time employment reached unusually high levels during the last recession and declined only slowly afterward. The speed of the decline was limited because of a combination of two factors: the number of people working part-time due to slack business conditions was declining, and the number of those who could find only part-time work continued to increase until 2013. Involuntary part-time employment recently returned to its pre-recession level but remains slightly elevated relative to historically low unemployment, likely due to structural factors.

Read the full article at the Federal Reserve Bank of San Francisco. [Archived PDF]

Index of Economic Letters.

Tangled Up Multifactorial Causes

Workers’ Shrinking Share of the Pie

The current issue of the Federal Reserve Bank of Richmond periodical, Econ Focus (second/third quarter 2019) has a good article, “Workers’ Shrinking Share of the Pie” [Archived PDF] which has the following “conclusion:”

So what explains the recent decline in labor’s share? Unfortunately, it is difficult to untangle the separate roles of automation, globalization, and changes in market power. Automation has likely played a role, but its independent impact is hard to gauge, due to the difficulty in differentiating the recent wave of automation from previous episodes in which labor’s share of national income held steady. Globalization appears to have been a strong contributor—a claim that is buttressed by the near simultaneity of the rise in U.S. trade with China and the decline of labor’s share. A variety of evidence also points to firms’ increased pricing power in product markets and workers’ weakened bargaining power in labor markets. In product markets, information technology and globalization appear to have increased the pricing power and profitability of certain dominant firms. And in labor markets, the insecurity engendered by automation and globalization may have helped to weaken workers’ bargaining power. In short, from the perspective of workers, multiple forces have come together to narrow their slice of an expanding economy.

(second/third quarter 2019 Econ Focus, Richmond Fed, page 17)

It so happens that Professor Robert Lawrence of Harvard (Kennedy School) in his very careful analyses, shows how American economic “numbers” in recent years are consistent with internal American numbers from decades ago and this implies the overall transformation of the American economy was primarily from within (“endogenous”) and not till very recently, from without (“exogenous”). Pre-exisiting internal American trends might be the dominant cause for many decades.

The variable or axis “endogenous versus exogenous” (internal pushes or external pulls?) adds a whole dimension to the discussion and we have to therefore avoid mono-causal explanations.

We live not only in a multifactorial world but in one where “inside pushes” can be confused with “external pulls.”

The Urban Institute’s State and Local Finance Initiative

The Urban Institute recently published its quarterly State Tax and Economic Review, which examines state tax revenues trends and the underlying economic factors.

They find that most states ended the year with surpluses. Yet states worry that the stimulus effect of the Trump tax cut is disappearing, forecasting weaker growth in income tax revenues for the fiscal year 2020.

[Archived PDF]

These analyses are based on data gathered directly from individual states. This collection is the only timely and accurate data source covering state tax revenue and fiscal performance for baselines and comparisons.

Abstract

State government tax revenues rebounded in the first quarter of 2019 after declines in the fourth quarter of 2018. However, year-over-year growth was substantially weaker in the first quarter of 2019 than in the final quarter of 2017 and the first three quarters of 2018. Most of the recent weakness was attributable to personal income tax declines.

State personal income taxes declined for the second consecutive quarter, reflecting a spike in state income tax payments in December 2017 and January 2018 in response to changes made in the TCJA. However, preliminary data for the second quarter of 2019 indicate double-digit growth in state personal income tax revenues, mostly because of higher final payments and delayed estimated payments filed in April. The surge in personal income tax revenues made up for earlier shortfalls in most states and put the revenues back on track for the states to close the budget books for fiscal year 2019 without shortfalls.

[Archived PDF]

If you are interested in accessing this data, please visit the Urban Institute to subscribe to its data services.

CMR Magazine on Article 6 Pilots, Carbon Pricing in Latin America, and More

Carbon Pricing in Latin America

Is Article 6 on the home stretch? In this issue [PDF] of the Carbon Mechanisms Review, we look at success factors for the negotiations, and analyze what is needed to make the Article 6 rulebook text ready for enabling up-scaled mitigation action. With regard to the ‘Latin American COP’ (taking place in Madrid), we cover the emerging carbon pricing landscape in the region while our cover feature reports on and analyses the current Article 6 pilot initiatives. An analysis of the latest CORSIA developments rounds off the issue.

[Archived PDF]

Education and Famine Analysis

The great historian Élie Halévy’s (died in 1937) History of the English People in the Nineteenth Century, a multi-volume classic, gives us a sense of nineteenth century famine dynamics for the 1840s, which combines failed harvests and failed incomes and failed speculations together:

“It was a ‘dearth’ (i.e., scarcity)—a crisis belonging to the old order—the last ‘dearth,’ in fact, Europe had known up to the present day (i.e., before 1937). The unsatisfactory harvest of 1845 was followed by the disastrous autumn of 1846. The potato disease was worse than it had been the year before. The cereal harvest, moderately good in 1845, was a failure not only in the United Kingdom, but in France and throughout Western Europe. In 1845, Great Britain could still purchase corn even in Ireland, while the Irish poor were starving to death. Nothing of the kind was possible at the end of 1846.

“Britain could not obtain wheat from France or Germany. In short, it was no longer Ireland alone, but the whole of Western Europe that had to be saved from famine.

“The United Kingdom, France, and Germany must import Russian and American wheat, the only sources available to supply the deficit.

“In consequence the price of wheat rose from 50 shillings and 2d. on August 22 to 65 shillings and 7d. on November 18. The price of wheat rose once more. It exceeded 78 shillings in March.

“In Germany and France, where another ‘jacquerie’ seemed to have begun, hunger caused an outbreak of rioting. The same happened in Scotland and the south of England…but England suffered in common with Ireland and Continental Europe, and a drain on English gold began, to pay for the Russian and American wheat.

“Later there was a fall of 50% in four months. The corn factors (i.e., corn dealers) who for months had been gambling on a rise had no time to retrace their steps and were ruined at a single blow.” (“Commerical Failures in 1847,” Eclectic Review, December 1847)

(Élie Halévy, “Victorian Years (1841-1895),” Halévy’s History of the English People in the Nineteenth Century, Volume 4, pages 191-193, Ernest Benn Ltd., 1970)

Note that in British usage, “corn” refers to all feed grains (primarily wheat), not corn (in the American sense) or maize. For example, see the Corn Laws.

We sense from Halévy’s description of the “food insecurity” of the nineteenth century in Europe, why the Revolutions of 1848 were to a large extent severe food riots and how food poverty and speculation interacted with risk and uncertainty prevailing.

This should be read and pondered in connection with Prof. Amartya Sen’s classic from 1981, Poverty and Famines, which highlights the famine of income and buying power, as opposed to famines based on outright crop failures. Pearl Buck’s classic novel, The Good Earth (1931), fits this topic set, as it analyzes in human terms the pattern of Chinese famines. It is interesting to note, parenthetically, that the movie of The Good Earth could not feature Chinese actors in lead roles due to racial craziness at the time. Stepping back, we see a world of food insecurity aggravated by the spectre of racism further poisoning social relations worldwide.

Halévy states: “It was a ‘dearth’ (i.e., scarcity)—a crisis belonging to the old order—the last ‘dearth,’ in fact, Europe had known up to the present day…”.

It would be instructive to ponder whether this really was “a crisis belonging to the old order” given the catastrophes and food crises that could come with climate change from 2019 on out. Will we have “global ‘dearths’”?