the problem of the 21st century is the problem of climate change – Page 2

Video: Finance and Decarbonization

Here is a roundtable hosted by the Jain Family Institute on finance and decarbonization.

What’s the best way to fund the massive investments the green transition will require? Saule Omarova and Bob Hockett make the case for a specialized National Investment Authority (NIA), which would issue various kinds of new liabilities as well as lend to both the public and private sector. Anusar Farooqui and Tim Sahay present their proposal for a green ratings agency, to encourage private investment in decarbonization. I speak for the Green New Deal approach, which favors direct public spending. Yakov Feygin and Daniela Gabor also take part. Yakov is another voice for the NIA, while Daniela criticizes a private finance-based approach to decarbonization, which effectively puts her with me on team Green New Deal. The panel is moderated by Adam Tooze.

My part starts at around 38:00, if you want to skip to that, but the whole thing is worth watching.

Video: The Macro Case for the Green New Deal

(Earlier this week, I gave a virtual presentation at an event organized by the Roosevelt Institute and the Green New Deal Network. Virtual events are inferior to live ones in many, many ways. But one way they are better, is that they are necessarily on video, and can be shared. Anyway, here is 25 minutes on why the economic situation calls for even more spending than the (surprisingly ambitious) proposals from the Biden administration, and also on why full employment shouldn’t be seen as an alternative to social justice and equity goals but as the best way of advancing them.)

Can We Afford a Green New Deal?

[I was at an event the other night bringing together people from the economic-policy and climate activism worlds. I was asked to talk about the macroeconomic case for a Green New Deal, and the question of “how do we pay for it?” Here is a somewhat extended and edited version of my remarks.]

Most of the Democratic candidates now have plans for major public investment programs to deal with the challenge of climate change. These involve spending on the order of 2 percent of GDP on average, ranging from half a percent for Beto O’Rourke up to 4 percent for Bernie Sanders.

A question that will get asked about any of these plans is, how do we pay for it? Can we afford it?

We might simply reject the question, on the grounds that what we cannot afford is to continue dumping carbon into the atmosphere. Any plan to substantially reduce carbon emissions will pass any reasonable cost-benefit test.

But I think we should answer the “pay for it” question. It has a good answer!

The question is really two questions:

– How can federal government finance it? – what new money coming in will match the new money going out?

– Are the real resources available, or will we have to sacrifice production in other areas?

On first question, given that low interest rates now seem to be a permanent feature of our world, it is very hard to make a an argument that additional borrowing on the scale of 2, 3 or even 4 percent of GDP would be economically costly. When interest rates are below GDP growth rates, the debt-to-GDP ratio stabilzies on its own, even if you run deficits forever. Unlike in the 1980s and 1990s, when interest rates were higher, today it is impossible for public debt to snowball out of control.

If it has no effect on growth, additional debt-financed spending of 2 percent of GDP would bring the debt-GDP ratio to about 105 percent in 2030. Debt-financed spending of 4 percent of GDP would bring the ratio to 125 percent. Looking around the world, or at history, there is just no evidence that debt at that level has any economic costs. The US ended World War II with a debt ratio of about 120 percent of GDP, the UK over 200 percent. Japan today has a debt ratio of 250 percent of GDP, while France and Belgium have debt ratios around 100 percent. None of these countries have seen any of the negative consequences – spiking interest rates, rising inflation, a collapsing exchange rate — that are supposed to follow from excessive government debt. Quite the opposite, in fact.

And if there is any boost to growth from additional spending – any role for what economists call called hysteresis — then the debt ratio would be even smaller. If we take a standard estimate of the multiplier — the boost to GDP from an additional dollar of public spending — of 1.5, and assume half of that effect is permanent, then debt-financed public spending can actually leave the debt ratio lower than it would be otherwise. In which case the new spending would fully pay for itself, even without any new revenue. Of course there is a lot of uncertainty around these questions – I wouldn’t promise an effect on growth that large. But it doesn’t seem crazy to think that a program public investment could substantially raise the economy’s productive potential.

If we do want to raise revenue, there is also plenty of space for taxes on very high incomes and wealth, or a carbon tax, or other taxes that are socially desirable for their own sake, to finance some substantial portion of a decarbonization program. A recent very thorough study of the space for high-end income and wealth taxes by a couple of professors at NYU identified taxes that could raise over 2 percent of GDP on a very targeted base of the highest incomes. A wealth tax, again targeted at the very richest households, could raise another 2 percent or so. These are taxes we would like to raise anyway, because great concentrations of income and wealth are bad for our democracy and for our society. (There’s even evidence they are bad for our health.) So if we can finance decarbonization this way, we shouldn’t see it as a cost.

We often hear that it’s a fantasy to say that decarbonization will be economically costless, that it isn’t realistic to talk about spending on this scale without broad-based tax increases, without sacrifices by the middle class households. But this is crackpot realism. Of course there will be costs in particular carbon-intensive sectors of the economy. But the notion that investing in decarbonization necessarily requires sacrifices by working people in general, or painful choices about the federal budget, is just not borne out by the numbers.

On the real resources side, the critical point is that by any measure, the US economy has operated below potential for the large majority of the time in recent decades. Taking official statistics at face value, since 1980 there have been 192 months when the unemployment rate was more than one point above the NAIRU – the unemployment rate targeted by the Fed. There have been only 18 months when it was more than one point below. It took a full seven years after the last downturn for output to return to official estimate of potential. The total shortfall equaled 25 percent of GDP.

Even the most ambitious climate plan would have been barely enough spending to fill that gap.

And there are lots of reasons to think that these official measure understates economic potential. GDP today is more than 10 percent below what was forecast a decade ago. Labor force participation still significantly down from a decade, even among those 25-54 – prime working-age adults. Inflation is still below target. Wage growth is still slow. Almost any alternative measure you can think of suggests that the economy is running well below potential even today, and that there is enough slack for a substantial program of public investment without the need to reduce production of anything else.

Even if we think the economy is operating at normal capacity today, there are major social benefits to letting demand push up against capacity – to running the economy hot. There is strong evidence that the only way you get a rise in the wage share and especially a rise in wages at the lower end, is with sustained very low unemployment – what people call a high-pressure economy. Consistent with that, we’ve begun to see some recovery in wages at the bottom of the distribution in the past couple years. This is welcome, but it’s nowhere enough to make up for losses in previous years. For that, we still need more spending, stronger demand.

And that’s today. In a few years, we are likely to want more spending much more.

Today many people are talking about the possibility of recession within next year or so. Nobody except for a few cranks is talking about a sudden surge of inflation, or sudden takeoff of wages.

If there is a recession, the ability of the Fed and other central banks to offset a fall in demand is gong to be even more limited this time than it was in the last recession. In past recessions, the Fed has typically reduced rates by 5 points, and this has still not been enough to stabilize demand. Now we will be starting from a federal funds rate of only 2 percent, giving room for only 2 points of cuts. And there is good reason to think that the economy is less sensitive to changes in the policy rate than we used to believe. Central bankers themselves are quite clear that we will need more public spending in a recession. When Fed chair Jay Powell testified before Congress earlier this summer, Alexandria Ocasio-Cortez asked him what he would do in the event of another deep recession. He said monetary policy would not be enough, that the Fed would need help from fiscal policy – from the federal government spending more. Christine Lagarde, in her first public comments after being appointed head of the European Central Bank, said the same thing, that governments in the eurozone needed to spend more to boost demand. The central bank can’t be “the only game in town,” she said.

One of the big lessons of the stimulus debates in the last recession is that it is very hard to ramp up public spending in a hurry. There are not a lot of “shovel ready” projects out there waiting for someone to just start writing checks. So if we think we are going to need a big boost to public spending in the near future, we had better begin ramping it up now.

Many discussions of the cost of responding to climate change start from the idea that we are fully using our resources. If this were true, we’d have to ask how much consumption is worth giving up today in order to maintain a habitable planet in the future. Obviously the answer should be: A lot! But we don’t have to ask the question, because it isn’t true. We are living in a world where we are not using all our real resources, because of a lack of demand. Some people call this secular stagnation. We are living in a world where the central macroeconomic problem is that there is too little spending to fully utilize the economy’s productive potential – not just occasionally in recessions, but all the time, or at least on average.

Some people will say to this: Ok, we agree that the economy is running below capacity. We agree there is space to add more federal debt, and to raise taxes on the rich. Still, you could use that space for anything. It’s not a case for Green New Deal specifically.

This sounds superficially reasonable, but I don’t think it’s right. Because the evidence of recent history suggests that we won’t use that space.

Almost everyone today agrees that stimulus in last recession was too small — and that even if it might have been big enough in the abstract, it was offset by massive anti-stimulus at the state-local level. The situation in Europe is even worse, with deep austerity almost everywhere, with the result that countries like Italy have lower GDP than a decade ago. Even when mainstream economists say there is actually a case for deficit spending and not to worry about balanced budgets, it turns out to be very hard to get the political system to listen.

If we don’t use our productive capacity and our financial capacity for a Green New Deal, it’s very likely we won’t use it for anything.

The discussion of public budgets, among economists and much of the media and policy world, has not caught up to reality. We still talk about governments being subject to deficit bias – that’s a term of art in the macroeconomics literature, used to justify all kinds of rules to restrict government spending. We have this idea that without some sort of hard external constraint, elected officials are going to declare it’s Christmas every day and shovel money out the door on anything popular. We assume that you need some sort of disciplining device to force policymakers to make hard choices, or else they will just try to spend without limit. But governments today don’t suffer from deficit bias. On the contrary: The problem is austerity bias. For whatever reason governments refuse to spend even when the economic case for it is overwhelming.

This isn’t just a wasted opportunity for all sorts of valuable public spending. It imposes real costs in slower growth, fewer jobs, lower wages. And slow growth and low employment and wages have political costs too, as we know.

In this environment, it’s wrong to think about tradeoffs and making hard choices. This may sound strange coming from an economists, but it’s wrong to think about opportunity costs. The question is not, why should we do this rather than that? The question is, how do we break through the logjam that stops us from doing anything at all?

One of the unique things about climate change is that it may be a crisis urgent enough to overcome the entrenched austerity bias of governments, and to push public spending up toward the level needed to get true full employment. It may be the only thing urgent enough other than a major war — which we certainly do not want.

So when we look at the cost of the climate proposals out there against today’s macroeconomic background, the question should not be, are they too expensive? The question should be: Are they expensive enough?

The Economic Case for the Green New Deal

(Co-authored with Sue Holmberg and Mark Paul, and cross-posted from Forbes. This is a teaser for a project the three of us are working on at the Roosevelt Institute on the economics of the Green New Deal.)

Almost overnight, the idea of a Green New Deal has won over environmental activists and many lawmakers. An all-out national mobilization to decarbonize the economy has a natural appeal to those who see climate change as an immediate, existential threat. But others have doubts. Why can’t markets guide the transition from carbon? Do we really need an expansion of the public sector on the scale of the New Deal or World War II? Can we afford it?

As economists, we think the answer is Yes.

To many economists, the obvious alternative to a Green New Deal is a carbon tax. Make the tax high enough, and businesses and consumers will figure the best ways to reduce emissions. A group of eminent economists from both parties, including Nobel Laureates and former Federal Reserve chairman, recently endorsed this approach to climate change. They argue that markets, rather than regulation or public spending, are best at spurring investments in clean energy.

Carbon pricing definitely has a role to play, but market approaches have limits. Markets are effective at allocating resources when the required adjustments are small and the outcomes clear and immediate. Yet, there’s a reason that during World War II, the government built aircraft factories and allocated scarce materials like steel and rubber through the War Production Board. Closer to home, there’s a reason that large businesses have professional managers to plan their operations, and don’t rely on internal markets.

The limits of leaving large-scale planning to markets should be even clearer today, especially after the experience of the housing bubble and crash, which demonstrated a colossal failure of financial markets to direct investment to productive uses. We shouldn’t count on the same financial system that so mismanaged the housing market to guide the shift away from fossil fuels on its own.

Instead, the government needs to mobilize our collective productive capacities through a mix of tools: directly through public investments and credit policy; through regulations that enforce key climate goals, in the same way that harmful chemicals are banned and not just taxed; and through taxes and subsidies that ensure that what consumers and businesses pay for goods and services reflects their true social cost.

What about the fact that the Green New Deal bill includes seemingly unrelated issues, like health coverage and a jobs guarantee? Is there a danger of weighing down a climate program with perhaps worthy but unrelated social goals? If we were talking about small-bore regulatory changes, this criticism might have merit. But we may be looking at five or ten percent of GDP, sustained over many years. Action on this scale is going to have major effects on labor markets and income distribution, one way or another. The question is only whether these impacts come haphazardly, or openly and deliberately.

A Green New Deal that didn’t address social justice would risk reinforcing existing inequities of education, geography, race and gender, as certain workers and regions found their labor in much greater demand and others much less. The fact that the authors of the bill have addressed these impacts directly does not mean they are getting distracted or being disingenuous. It means they are taking the project seriously. As recent events in France demonstrate, environmental policy that ignores existing inequities invites a ferocious backlash.

Perhaps the most common question about the Green New Deal approach is “How do we pay for it?” That is, where will the money come from for new public spending? And where will the real resources come from, for both public and private investment in decarbonization?

Supporters of the Green New Deal, like most Americans, also favor higher taxes on very high incomes and wealth. But these will not cover all the increased public spending. So, yes, the government will borrow more, but this shouldn’t worry us.

In recent years, there has been a remarkable shift among economists on the dangers of high public debt. The big runup in U.S. debt over the past decade has not been accompanied by any of the disasters that we used to fear—runaway inflation, sky-high interest rates. Neither has rising debt in Japan, which has now reached 250 percent of GDP with no obvious ill effects.

In a world of low interest rates, which seem to be here for the foreseeable future, there is no danger of a runaway debt spiral. The idea that low interest rates make deficits less worrisome has been forcefully argued by people like former IMF chief economist Olivier Blanchard and former Treasury Secretary Lawrence Summers and Council of Economic Advisors Chair Jason Furman. Even if the government runs deficits year after year, the debt will eventually stabilize.

On the productivity side, there is good reason to think that our economy is still operating well below full capacity. Real GDP today is more than 10 percent below the level predicted a decade ago, and at least some of this gap reflects lingering weak demand following the Great Recession. Despite the low headline unemployment rate, the fraction of working-age adults in the labor market is substantially lower than it was a decade ago — let alone than in the late 1990s, or in many other rich countries. Meanwhile, flat productivity suggests that many of the Americans who have jobs are underemployed. A truly strong labor market would bring discouraged workers back into the labor force, shift currently employed workers into more high-yielding work, and boost wage growth – something that still hasn’t happened despite today’s supposedly tight labor markets.

We won’t know for sure how much space there is exactly until we reach the limits, but there’s every reason to push them – if a deficit-funded Green New Deal causes the economy to run hot for a while, that’s a benefit, not a cost. Faster wage growth will help workers regain the ground they have lost in the last 50 years. And if the Fed has to raise rates to step on the brakes, that gives them more room to cut them again in the next recession.

There is no silver bullet to address climate change, but history shows us that market approaches alone are not enough – public investment and other, more direct government action are necessary to provide an effective, robust response. The costs of a Green New Deal are affordable, but the costs of inaction are literally beyond calculation.

As economists, we see a Green New Deal as eminently reasonable. As human beings, we see it as a necessity.

“Economic Growth, Income Distribution, and Climate Change”

In response to my earlier post on climate change and aggregate demand, Lance Taylor sends along his recent article “Economic Growth, Income Distribution, and Climate Change,” coauthored with Duncan Foley and Armon Rezai.

The article, which was published in Ecological Economics, lays out a structuralist growth model with various additions to represent the effects of climate change and possible responses to it. The bulk of the article works through the formal properties of the model; the last section shows the results of some simulations based on plausible values of the various parmaters. ¹ I hadn’t seen the article before, but its conclusions are broadly parallel to my arguments in the previous two posts. It tells a story in which public spending on decarbonization not only avoids the costs and dangers of climate change itself, but leads to higher private output, income and employment – crowding in rather than crowding out.

Before you click through, a warning: There’s a lot of math there. We’ve got a short run where output and investment are determined via demand and distribution, a long run where the the investment rate from the short run dynamics is combined with exogenous population growth and endogenous productivity growth to yield a growth path, and an additional climate sector that interacts with the economic variables in various ways. How much the properties of a model like this change your views about the substantive question of climate change and economic growth, will depend on how you feel about exercises like this in general. How much should the fact that that one can write down a model where climate change mitigation more than pays for itself through higher output, change our beliefs about whether this is really the case?

For some people (like me) the specifics of the model may be less important that the fact that one of the world’s most important heterodox macroeconomists thinks the conclusion is plausible. At the least, we can say that there is a logically coherent story where climate change mitigation does not crowd out other spending, and that this represents an important segment of heterodox economics and not just an idiosyncratic personal view.

If you’re interested, the central conclusions of the calibrated model are shown below. The dotted red line shows the business-as-usual scenario with no public spending on climate change, while the other two lines show scenarios with more or less aggressive public programs to reduce and/or offset carbon emissions.

Here’s the paper’s summary of the outcomes along the business-as-usual trajectory:

Rapid growth generates high net emissions which translate into rising global mean temperature… As climate damages increase, the profit rate falls. Investment levels are insufficient to maintain aggregate demand and unemployment results. After this boom-bust cycle, output is back to its current level after 200 years but … employment relative to population falls from 40% to 15%. … Those lucky enough to find employment are paid almost three times the current wage rate, but the others have to rely on subsistence income or public transfers. Only in the very long run, as labor productivity falls in response to rampant unemployment, can employment levels recover.

In the other scenarios, with a peak of 3-6% of world GDP spent on mitigation, we see continued exponential output growth in line with historical trends. The paper doesn’t make a direct comparison between the mitigation cases and a world where there was no climate change problem to begin with. But the structure of the model at least allows for the possibility that output ends up higher in the former case.

The assumptions behind these results are: that the economy is demand constrained, so that public spending on climate mitigation boosts output and employment in the short run; that investment depends on demand conditions as well as distributional conflict, allowing the short-run dynamics to influence the long-run growth path; that productivity growth is endogenous, rising with output and with employment; and that climate change affects the growth rate and not just the level of output, via lower profits and faster depreciation of existing capital.²

This is all very interesting. But again, we might ask how much we learn from this sort of simulation. Certainly it shouldn’t be taken as a prediction! To me there is one clear lesson at least: A simple cost benefit framework is inadequate for thinking about the economic problem of climate change. Spending on decarbonization is not simply a cost. If we want to think seriously about its economic effects, we have to think about demand, investment, distribution and induced technological change. Whether you find this particular formalization convincing, these are the questions to ask.

Guns and Ice Cream

I’ve gotten some pushback on the line from my decarbonization piece that “wartime mobilization did not crowd out civilian production.” More than one person has told me they agree with the broader argument but don’t find that claim believable. Will Boisvert writes in comments:

Huh? The American war economy was an *austerity* economy. There was no civilian auto production or housing construction for the duration. There were severe housing shortages, and riots over housing shortages. Strikes were virtually banned. Millions of soldiers lived in barracks, tents or foxholes, on rations. So yeah, there were drastic trade-offs between guns and butter (which was rationed for civilians).

It’s true that there were no new cars produced during the war, and very little new housing.³ But this doesn’t tell us what happened to civilian output in general. For most of the war, wartime planning involved centralized allocation of a handful of key resources — steel, aluminum, rubber — that were the most important constraints on military production. This obviously ruled out making cars, but most civilian production wasn’t directly affected by wartime controls. ⁴ If we want to look at what happened to civilian production overall, we have to look at aggregate measures.

The most comprehensive discussions of this I’ve seen are in various pieces by Hugh Rockoff.⁵ Here’s the BEA data on real (inflation-adjusted) civilian and military production, as he presents it:

Civilian and military production in constant dollars. Source: H. Rockoff, ‘The United States: from ploughshares into swords’ in M. Harrison, ed, The Economics of World War II

As you can see, civilian and military production rose together in 1941, but civilian production fell in 1942, once the US was officially at war. So there does seem to be some crowding out. But looking at the big picture, I think my claim is defensible. From 1939 to its peak in 1944, annual military production increased by 80 percent of prewar GDP. The fall in real civilian production over this period was less than 4 percent of prewar GDP. So essentially none of the increase in military output came at the expense of civilian output; it was all additional to it. And civilian production began rising again before the end of the war; by 1945 it was well above 1939 levels.

Production is not the same as living standards. As it happens, civilian investment fell steeply during the war — in 1943-44, it was only about one third its prewar level. If we look at civilian consumption rather than output, we see a steady rise during the war. By the official numbers, real per-capita civilian consumption was 5 percent higher in 1944 – the peak of war production — than it had been in 1940. Rockoff believes that, although the BLS did try to correct for the distortions created by rationing and price controls, the official numbers still understate the inflation facing civilians. But even his preferred estimate shows a modest increase in per-capita civilian consumption over this period.

We can avoid the problems of aggregation if we look at physical quantities of particular goods. For example, shoes were rationed, but civilians nonetheless bought about 5 percent more shoes annually in 1942-1944 than they had in 1941. Civilian meat consumption increased by about 10 percent, from 142 pounds of meat per person in 1940 to 154 pounds per person in 1944. As it happens, butter seems to be one of the few categories of food where consumption declined during the war. Here’s Rockoff’s discussion:

Consumption of edible fats, particularly butter, was down somewhat during the war. Thus in a strict sense the United States did not have guns and butter. The reasons are not clear, but the long-term decline in butter consumption probably played a role. Ice cream consumption, which had been rising for a long time, continued to rise. Thus, the United States did have guns and ice cream. The decline in edible fat consumption was a major concern, and the meat rationing system was designed to provide each family with an adequate fat ration. The concern about fats aside, [civilian] food production held up well.

As this passage suggests, rationing in itself should not be seen as a sign of increased scarcity. It is, rather, an alternative to the price mechanism for the allocation of scarce goods. In the wartime setting, it was introduced where demand would exceed supply at current prices, and where higher prices were considered undesirable. In this sense, rationing is the flipside of price controls. Rationing can also be used to deliver a more equitable distribution than prices would — especially important where we are talking about a necessity like food or shoes.

The fundamental reason why rationing was necessary in the wartime US was not that civilian production had fallen, but because civilian incomes were rising so rapidly. Civilian consumption might have been 5 percent higher in 1944 than in 1940; but aggregate civilian wages and salaries were 170 percent higher. Prices rose somewhat during the war years; but without price controls and rationing inflation would undoubtedly have been much higher. Rockoff’s comment on meat probably applies to a wide range of civilian goods: “Wartime shortages … were the result of large increases in demand combined with price controls, rather than decreases in supply.”

Another issue, which Rockoff touches on only in passing, is the great compression of incomes during the war. Per Piketty and co., the income share of the top 10 percent dropped from 45 percent in 1940 to 33 percent in 1945. If civilian consumption rose modestly in the aggregate, it must have risen by more for the non-wealthy majority. So I think it’s pretty clear that in the US, civilian living standards generally rose during the war, despite the vast expansion of military production.

You might argue that even if civilian consumption rose, it’s still wrong to say there was no crowding out, since it could have risen even more without the war. Of course one can’t know what would have happened; even speculation depends on what the counterfactual scenario is. But certainly it didn’t look this way at the time. Real per capita income in the US increased by less than 2 percent in total over the decade 1929-1939. So the growth of civilian consumption during the war was actually faster than in the previous decade. There was a reason for the popular perception that “we’ve never had it so good.”

It is true that there was already some pickup in growth in 1940, before the US entered the war (but rearmament was already under way). But there was no reason to think that faster growth was fated to happen regardless of military production. If you read stuff written at the time, it’s clear that most people believed the 1930s represented, at least to some degree, a new normal; and no one believed that the huge increase in production of the war years would have happened on its own.

Will also writes:

War production itself was profoundly irrational. Expensive capital goods were produced, thousands of tanks and warplanes and warships, whose service lives spanned just a few hours. Factories and production lines were built knowing that in a year or two there would be no market at all for their products.

I agree that military production itself is profoundly irrational. Abolishing the military is a program I fully support. But I don’t think the last sentence follows. Much wartime capital investment could be, and was, rapidly turned to civilian purposes afterwards. One obvious piece of evidence for this is the huge increase in civilian output in 1946; there’s no way that production could increase by one third in a single year except by redirecting plant and equipment built for the military.

And of course much wartime investment was in basic industries for which reconversion wasn’t even necessary. The last chapter of Mark Wilson’s Destructive Creation makes a strong case that postwar privatization of factories built during the war was very valuable for postwar businesses, and that acquiring them was a top priority for business leaders in the reconversion period. ⁶ By one estimate, in the late 1940s around a quarter of private manufacturing capital consisted of plant and equipment built by the government during the war and subsequently transferred to private business. In 1947, for example, about half the nation’s aluminum came from plants built by the government during the war for aircraft production. All synthetic rubber — about half total rubber production — came from plants built for the military. And so on. While not all wartime investment was useful after the war, it’s clear that a great deal was.

I think people are attracted to the idea of wartime austerity because we’ve all been steeped in the idea of scarcity – that economic problems consist of the allocation of scarce means among alternative ends, in Lionel Robbins’ famous phrase. Aggregate demand is, in that sense, a profoundly subversive idea – it suggests that’s what’s really scarce isn’t our means but our wants. Most people are doing far less than they could be, given the basic constraints of the material world, to meet real human needs. And markets are a weak and unreliable tool for redirecting our energies to something better. World War II is the biggest experiment to date on the limits of boosting output through a combination of increased market demand and central planning. And it suggests that, altho supply constraints are real — wartime controls on rubber and steel were there for a reason – in general we are much, much farther from those constraints than we normally think.

Decarbonization: A Keynesian View

The International Economy has asked me to take part in a couple of their recent roundtables on economic policy. My first contribution, on productivity growth, is here (scroll down). My second one, on green investment, is below. But first, I want to explain a little more what I was trying to do with it.

I am not trying to minimize that challenge of dealing with the climate change. But I do want to reject one common way of thinking about those challenges — as a “cost”, as some quantity of other needs that will have to go unmet. I reject it because output isn’t fixed — a serious effort to deal with climate change will presumably lead to a boom with much higher levels of employment and investment. And more broadly I reject it because it’s profoundly wrong to think of the complex activities of production as being equivalent to a certain quantity of “stuff”.

There’s a Marxist version of this, which I also reject — that the reproduction of capitalism requires an ever-increasing flow of material inputs and outputs, which rules out any kind of environmental sustainability. I think this mistakenly equates the situation facing the individual capitalist — the need to maximize money sales relative to money outlays — with the logic of the system as a whole. There is no necessary link between endless accumulation of money and any particular transformation of the material world. To me the real reason capitalism makes it so hard to address climate change isn’t any objective need to dump carbon into the atmosphere. It’s the obstacles that private property and the pursuit of profit — and their supporting ideologies — create for any kind of conscious reorganization of productive activity.

The question was, who will be the winners and losers from the transition away from carbon? Here’s what I wrote:

The response to climate change is often conceived as a form of austerity—how much consumption must we give up today to avoid the costs of an uninhabitable planet tomorrow? This way of thinking is natural for economists, brought up to think in terms of the allocation of scarce means among competing ends. By some means or other—prices, permits, or plans—part of our fixed stock of resources must, in this view, be used to prevent (or cope with) climate change, reducing the resources available to meet other needs.

The economics of climate change look quite different from a Keynesian perspective, in which demand constraints are pervasive and the fundamental economic problem is not scarcity but coordination. In this view, the real resources for decarbonization will not have to be with- drawn from other uses. They can come from an expansion of society’s productive capabilities, thanks to the demand created by clean-energy investment itself. Addressing climate change need not imply a lower standard of living—if it boosts employment and steps up the pace of technological change, it may well lead to a higher one.

People rightly compare the scale of the transition to clean technologies to the mobilization for World War II. Often forgotten, though, is that in countries spared the direct destruction of the fighting, like the United States, wartime mobilization did not crowd out civilian production. Instead, it led to a remarkable acceleration of employment and productivity growth. Production of a liberty ship required 1,200 man hours in 1941, only 500 by 1944. These rapid productivity gains, spurred by the high-pressure economy of the war, meant there was no overall tradeoff between more guns and more butter.

At the same time, the degree to which all wartime economies—even the United States—were centrally planned, reinforces a lesson that economic historians such as Alexander Gerschenkron and Alice Amsden have drawn from the experience of late industrializers: however effective decentralized markets may be at allocating resources at the margin, there is a limit to the speed and scale on which they can operate. The larger and faster the redirection of production, the more it requires conscious direction—though not necessarily by the state.

In a world where output is fundamentally limited by demand, action to deal with climate change doesn’t require sacrifice. Do we really live in such a world? Think back a few years, when macroeconomic discussions were all about secular stagnation and savings gluts. The headlines may have faded, but the conditions that prompted them have not. There’s good reason to think that the main limit to capital spending still is not scarce savings, but limited outlets for profitable investment, and that the key obstacle to faster growth is not technology or “structural” constraints, but the willingness of people to spend money. Bringing clean energy to scale will call forth new spending, both public and private, in abundance.

Of course, not everyone will benefit from the clean energy boom. The problem of stranded assets is real— any effective response to climate change will mean that much of the world’s coal and oil never comes out of the ground. But it’s not clear how far this problem extends beyond the fossil fuel sector. For manufacturers, even in the most carbon-intensive industries, only a small part of their value as enterprises comes from the capital equipment they own. More important is their role in coordinating production—a role that conventional economic models, myopically focused on coordination through markets, have largely ignored. organizing complex production processes, and maintaining trust and cooperation among the various participants in them, are difficult problems, solved not by markets but by the firm as an ongoing social organism. This coordination function will retain its value even as production itself is transformed.

UPDATE: Followup post on the World War II experience here.

Short-Termism, Climate Edition

Apparently, the lords of finance are now concerned that fossil-fuel companies are planning too much for the transition from carbon, at the risk of leaving dollars in the ground.

[Shell chief executive Ben] van Beurden told investors last month that Shell is no longer an oil and gas group, but is an “energy transition company” — a nod to its shift towards a low-carbon energy system. It is a statement that would have been unthinkable just a few years ago. But persistent cost-cutting and mounting climate concerns have left many in the sector worried that the industry is making a miscalculation. They fear it is turning its back on many big oil and gas projects before efficiency gains, renewables, electric cars and efforts to conserve fossil fuels are able to cap consumption.

By “the sector,” to be clear, what the Financial Times writer means is the sector of finance with claims against energy producers.

I don’t believe energy executives have any principled commitment to the survival of the planet. But they may have a commitment which is cognate to it: to the survival of their businesses as ongoing entitities, which means committing money today to prepare for a post-carbon world. That’s where the conflict with finance comes from. Here’s Nick Stansbury, representing some financial conglomerate that owns a big chunk of Shell and BP:

Oil groups should, he says, avoid projects that take 10 or more years to become profitable… Instead they should focus on maximising returns to shareholders, including eventually returning capital rather than trying to transform themselves into renewable companies.

Funny how that’s so often the answer.

Posts in Three Lines

I haven’t been blogging much lately. I’ve been doing real work, some of which will be appearing soon. But if I were blogging, here are some of the posts I might write.

Lessons from the 1990s. I have a new paper coming out from the Roosevelt Institute, arguing that we’re not as close to potential as people at the Fed and elsewhere seem to believe, and as I’ve been talking with people about it, it’s become clear that your priors depend a lot on how you think of the rapid growth of the 1990s. If you think it was a technological one-off, with no value as precedent — a kind of macroeconomic Bush v. Gore — then you’re likely to see today’s low unemployment as reflecting an economy working at full capacity, despite the low employment-population ratio and very weak productivity growth. But if you think the mid-90s is a possible analogue to the situation facing policymakers today, then it seems relevant that the last sustained episode of 4 percent unemployment led not to inflation but to employers actively recruiting new entrants to the laborforce among students, poor people, even prisoners.

Inflation nutters. The Fed, of course, doesn’t agree: Undeterred by the complete disappearance of the statistical relationship between unemployment and inflation, they continue to see low unemployment as a threatening sign of incipient inflation (or something) that must be nipped in the bud. Whatever other effects rate increases may have, the historical evidence suggests that one definite consequence will be rising private and public debt ratios. Economists focus disproportionately on the behavioral effects of interest rate changes and ignore their effects on the existing debt stock because “thinking like an economist” means, among other things, thinking in terms of a world in which decisions are made once and for all, in response to “fundamentals” rather than to conditions inherited from the past.

An army with only a signal corps. What are those other effects, though? Arguments for doubting central bankers’ control over macroeconomic outcomes have only gotten stronger than they were in the 2000s, when they were already strong; at the same time, when the ECB says, “let the government of Spain borrow at 2 percent,” it carries only a little less force than the God of genesis. I think we exaggerate power of central banks over real economy, but underestimate their power over financial markets (with the corollary that economists — heterodox as much as mainstream — see finance and real activity as much more tightly linked than they are).

It’s easy to be happy if you’re heterodox. This spring I was at a conference up at the University of Massachusetts, the headwaters of American heterodox economics, where I did my Phd. Seeing all my old friends reminded me what good prospects we in the heterodox world have – literally everyone I know from grad school has a good job. If you are wondering whether your prospects would be better at a nowhere-ranked heterodox economics program like UMass or a top-ranked program in some other social science, let me assure you, it’s the former by a mile — and you’ll probably have better drinking buddies as well.

The euro is not the gold standard. One of the topics I was talking about at the UMass conference was the euro which, I’ve argued, was intended to create something like a new gold standard, a hard financial constraint on governments. But that that was the intention doesn’t mean its the reality — in practice the TARGET2 system means that national central banks don’t face any binding constraint , unlike under the gold standard the central bank is “outside” the national monetary membrane. In this sense the euro is structurally more like Keynes’ proposals at Bretton Woods, it’s just not Keynes running it.

Can jobs be guaranteed? In principle I’m very sympathetic to the widespread (at least among my friends on social media) calls for a job guarantee. It makes sense as a direction of travel, implying a commitment to a much lower unemployment rate, expanded public employment, organizing work to fit people’s capabilities rather than vice versa, and increasing the power of workers vis-a-vis employers. But I have a nagging doubt: A job is contingent by its nature – without the threat of unemployment, can there even be employment as we know it?

The wit and wisdom of Haavelmo. I was talking a while back about Merijn Knibbe’s articles on the disconnect between economic theory and the national accounts with my friend Enno, and he mentioned Trygve Haavelmo’s 1944 article on The Probability Approach in Econometrics, which I’ve finally gotten around to reading. One of the big points of this brilliant article is that economic variables, and the models they enter into, are meaningful only via the concrete practices through which the variables are measured. A bigger point is that we study economics in order to “become master of the happenings of real life”: You can contribute to economics in the course of advancing a political project, or making money in financial markets, or administering a government agency (Keynes did all three), but you will not contribute if you pursue economics as an end in itself.

Coney Island. Laura and I took the boy down to Coney Island a couple days ago, a lovely day, his first roller coaster ride, rambling on the beach, a Cyclones game. One of the wonderful things about Coney Island is how little it’s changed from a century ago — I was rereading Delmore Schwartz’s In Dreams Begin Responsibilities the other day, and the title story’s description of a young immigrant couple walking the boardwalk in 1909 could easily be set today — so it’s disconcerting to think that the boy will never take his grandchildren there. It will all be under water.

Links for July 27, 2016

Labor dynamism and demand. My colleagues Mike Konczal and Marshall Steinbaum have an important new paper out on the decline in new business starts and in labor mobility. They argue that the data don’t support a story where declining labor-market dynamism is the result of supply-side factors like occupational licensing. It looks much more like the result of chronically weak demand for labor, which for whatever reason is not picked up by the conventional unemployment rate. This is obviously relevant to the potential output question I’m interested in — a slowdown in the rate at which workers move to new firms is a natural channel by which weak demand could reduce labor productivity. It’s also a very interesting story in its own right.

Konczal and Steinbaum:

The decline of entrepreneurship and “business dynamism” has become an accepted fact … Explanations for these trends … broadly fall on the supply side: that increasingly onerous occupational licensing impedes entry into certain protected professions and restricts licensed workers to staying where they are; that the high cost of housing thanks to restrictions on development hampers individuals from moving… But we find that the data reject these supply-side explanations: If there were increased restrictions on changing jobs or starting a business, we would expect those few workers and entrepreneurs who do manage to move to enjoy increased wage gains relative to periods with higher worker flows, and we would expect aggressive hiring by employers with vacancies. … Instead, we see the opposite…

We propose a different organizing principle: Declining business dynamism and labor mobility are features of a slackening labor market … workers lucky enough to have formal employment stay where they are rather than striking out as entrepreneurs …

Also in Roosevelt news, here’s a flattering piece about us in the New York Times Magazine.

John Kenneth who? Real World Economics Review polled its subscribers on the most important economics books of the past 100 years. Here’s the top ten. Personally I suspect Debt will have more staying power than Capital in the 21st Century, and I think Minsky’s book John Maynard Keynes is a better statement of his vision than Stabilizing an Unstable Economy, a lot of which is focused on banking-sector developments of the 1970s and 1980s that aren’t of much interest today. But overall it’s a pretty good list. The only one I haven’t read is The Affluent Society. I wonder if anyone under the age of 50 picked that one?

Deflating the elephant. Here is a nice catch from David Rosnick. Brank Milanovic has a well-known graph of changes in global income distribution over 1988-2008. What we see is that, while within most countries there has been increased polarization, at the global level the picture is more complicated. Yes, the top of the distribution has gone way up, and the very bottom has gone down. But the big fall has been in the upper-middle of the distribution — between the 80th and 99th percentiles — while most of the lower part has has risen, with the biggest gains coming around the 50th percentile. The decline near the high end is presumably working-class people in rich countries and most people in the former Soviet block —who were still near the top of the global distribution in 1988. A big part of the rise in the lower half is China. A natural question is, how much? — what would the distribution look like without China? Milanovic had suggested that the overall picture is still basically the same. But as Rosnick shows, this isn’t true — if you exclude China, the gains in the lower half are much smaller, and incomes over nearly half the distribution are lower in 2008 than 20 years before. It’s hard to see this as anything but a profoundly negative verdict on the Washington Consensus that has ruled the world over the past generation.

By the way, you cannot interpret this — as I at first wrongly did — as meaning that 40 percent of the world’s people have lower incomes than in 1988. It’s less than that. Faster population growth in poor countries would tend to shift the distribution downward even if every individual’s income was rising.

Does nuclear math add up? Over at Crooked Timber, there’s been an interesting comments-thread debate between Will Boisvert (known around here for his vigorous defense of nuclear power) and various nuke antis and skeptics. I’m the farthest thing from an expert, I can’t claim to be any kind of arbiter. But personally my sympathies are with Will. One important thing he brings out, which I hadn’t thought about enough until now, is the difference between electricity and most other commodities. Part of the problem is the very large share of fixed costs — as the Crotty-Minsky-Perelman strain of Keynesians have emphasized, capitalism does badly with long lived capital assets. A more distinctive problem is the time dimension — electricity produced at one time is not a good substitute for electricity produced at a different time, even just an hour before or after. Electricity cannot be stored economically at a meaningful scale, nor — given that almost everything in modern civilization uses it — can its consumption be easily shifted in time. This means that straightforward comparisons of cost per kilowatt — hard enough to produce, given the predominance of fixed costs — can be misleading. Regardless of costs, intermittent sources — like wind or solar — have to be balanced by sources that can be turned on anytime — which in the absence of nuclear, means fossil fuels.

Do you believe, as I do, that climate change is the great challenge facing humanity in the next generation? Then this is a very strong argument for nuclear power. Whatever its downsides, they are not as bad as boiling the oceans. Still, it’s not a decisive argument. The big other questions are the costs of power storage and of more extensive transmission networks — since when the sun isn’t shining and the wind isn’t blowing in one place, they probably are somewhere else. (I agree with Will that using the price mechanism to force electricity usage to conform to supply from renewables is definitely the wrong answer.) The CT debate doesn’t answer those questions. But it’s still an example of how informative blog debate can be when there are people both sides with real expertise who are prepared to engage seriously with each other.

On other blogs, other wonders. Here is a fascinating post by Laura Tanenbaum on the end of sex-segregated job ads and the false dichotomy between “elite” and “grassroots” feminism.

This very interesting article by Jose Azar on the extent and economic significance of common ownership of corporate shares deserves a post of its own.

Here’s a nice little think piece from Bloomberg wondering what, if anything, is meant by “the natural rate” of interest. I’m glad to see some skepticism about this concept in the larger conversation. In my mind, the “natural rate” is one of the key patches covering over the disconnect between economic theory and the observable economy.

Bhenn Bhiorach has a funny post on the lengths people will go to to claim that low inflation is really high inflation.