Squeezing the Triggers

Former Treasury Secretary Paul O’Neil talks in his book about how in 2001-2 he and Fed Chairman Greenspan preferred a “trigger” approach to the then proposed Bush tax cuts. They wanted to cut taxes in phases depending on the future growth of revenues relative to budget needs. There was a current account surplus at the time, and so they had no problem cutting revenues, but they wanted to do it in parts so that if a budget deficit opened again they could achieve some balance between future needs and tax reductions, by not pulling the trigger on the rest of the cuts. It was a good idea because it was extremely policy neutral. It did not oppose tax cuts at all, and would have let trillions of dollars of them go forward, just so long as they were real cuts, not just an intergenerational transfer. I think the same idea of triggers could have been useful with the American Recovery and Reinvestment Act.

Congress could have developed three $250 billion segments, with only the contents of the first chunk really spelled out in the legislation. The first segment would be spent immediately, and the President and his advisers would submit a plan to spend the other two when they needed them, allowing them to adapt as the economic situation evolves. This would have focused funds on the areas where they can be spent the fastest, made passing the bill even quicker, allowed an opportunity for “lessons learned” in the remaining two sections, allowed the nation to essentially test how well the stimulus worked (for instance by comparing White House job creation estimates to reality), given control over the amount added to the deficit by not spending the whole amount if the economy began significantly rebounding, and essentially improved the package over time by seeing where the most jobs are created for the least amount of money and where investments enhance productivity the greatest.

Now anyone in favor of the stimulus would surely point out that it was so big because the challenges are so big, and two, passing it once was no sure thing, so why repeat it. On the first point, in all actuality there are very real constraints on how fast that volume of money can be spent. Infrastructure grants typically take 5 years to administer, any job in an emerging field (like green energy) by definition has a scarce labor market and so there needs to be new technical training and certification, which can take years. Even just obligating the money, e.g. signing contracts to spend it, is subject to either a formulaic application process, competitive bidding, or the state legislative process – all of which takes time. And then often there is design work or studies that have to be done before people can even be hired. That’s why the White House estimates about 75% of the funds will be spent within 18 months. That’s quick, and about as quick as it could be reliably done, but it’s by no means particularly streamlined. So long as the three triggers are pulled within a year or longer, the funds will get out the door at the same rate as the consolidated version, and because of learning and technology, it might even become more efficient. Right now Energy Secretary Chu, a brilliant Nobel chemist, has over $150 billion in credit authority that he can place basically anywhere he thinks will advance green technology and create jobs. And understandably, he’s still trying to figure out the best way to do it. This inevitably involves wading through thousands of applications from mainly promising sounding companies who applied via their states for a piece of the action. Figuring out which ones to give money is tough. Figuring out how to make all those loans into a cohesive system is tougher. And knowing if you spent the money as well as could be done, for instance that you didn’t deny the next Google of energy, is probably impossible. If the money was spent in waves, and appropriated in triggers, they could adapt their lending based on real results in the field and be surer that they’re making the best investments for the economy and for the future. The worst situation would be to invest in an idea or project that becomes obsolete, then people are unemployed all the same once it’s built, but then are stuck with a less productive economy because of antiquated technology, and now will have to pay higher taxes to pay off the debt from the stimulus. A triggered approach would provide real-time information to make the soundest investments.

On the issue of passing three parts, one has to look no further than the Troubled Asset Relief Program. It had two parts, where the President had to request to use the second half of the funds and get a majority vote to receive the funds. Now I think the TARP has been very successful given its point. There was a clear and present risk of systemic failure of the credit markets in early October. In the course of a week there was a string of huge financial institutions failing, and each one lost weakened the remaining. Since TARP passed and the banks recapitalized, there have been no major failures and now that basically seems out of the question. The point wasn’t to create a boom or solve every firm’s problems (in fact you don't want to do that because it deflates the important value of risk appreciation), it was to ensure the continued operation of the capital markets, and it did. Secretary Paulson and Chairman Bernanke had essentially a weekend to come up with a plan, and I think they did a brilliant job. And they structured it in a way that taxpayers will almost certainly see every dime back. So the stimulus could have been done in the same way, where the President has to submit a plan for spending the remaining section when he wants it, and then a 51% vote is required in Congress. Given the majority’s comfortable cushion, the request could be passed in an afternoon. Only the bill itself authorizing this structure would require 60%.

I also think that the stimulus bill could have been more creative, and not cheesy idealistic creative, but 21st century creative. Basic infrastructure is important. We need bridges and wastewater plants and sidewalks. States and localities already spend enormous sums on this every year and there are large revolving funds provided by the federal government annually in these areas. The stimulus needed $100 billion immediately going to the states to cover current deficits, and it needed money for basic infrastructure and schools and transportation. But how about incentives for new investments? What about a venture fund to invest in new research and companies? In a hyper-competitive and growing (on net over the 21st century the world will almost assuredly see the largest creation of wealth in history, China and India alone are on pace to pull almost half the world into the middle class) we must make long-term investments. As Friedman recently wrote, what about recruiting the best Ph.D’s from around the world by issuing more skilled worker visas, so they can build companies here and create new demand via buying surplus houses and supporting American businesses? The world becomes less brick and mortar every day, yet this bill seems to lay a lot of bricks. This stimulus is probably one of the greatest domestic policy achievements of a President in the first month in office ever. There is no perfect policy, yet this one is quite good. How good is very hard to know, unless you waited for some of the smoke to clear before pulling the trigger again.