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MONETARY POLICY IMPROVEMENT ACT OF 1979
HEARINGS·
BEFORE THE
COMMITTEE ON
BANKING, HOUSING, AND URBAN AFFAIRS
UNITED STATES SEN ATE
NINETY-SIXTH CONGRESS
FIRST SESSION
ON
s.
85
TO AMEND THE FEDE!RAL RESERVE ACT TO PROVIDE FOR
UAINTENANCE OF RESERVES IN ORDER TO FACILITATE THE
IMPLEMENTATION OF MONETARY POLICY, TO PROMOTE COMPETITIVE EQUALITY AMONG DEPOSITORY INSTITUTIONS, TO
REQUIRE THE IMPOSITION OF SERVICE CHARGES FOR SERVIiOES ·BY ·FEDERAL 'RIDSERVE BANKS, AND FOR OTHER
PURPOSES
s.
353
TO FAOILITATE THE DEVELOPMENT AND IM'PLEMENTATION
OF MONETARY POLICY; TO REDUCE AND RESTRUCTURE
RESERVE REQUIREMENTS; AND '110 PROVIDE FOR THE MAINTENANCE OF RESERVES BY MEMBER BANKS AND OTHER
DEPOSITORY IN1STITUTIONS IN EARNINGS PARTICIPATION
ACCOUNTS AT THE FEDERAL RESERVE BANKS
FEBRUA~Y 26, MARCH 26, 27, 28, AND ·MAY 14, 1979
Printed for the use of the Committee on Banking, Housing,
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Federal Reserve Bank of St. Louis
and Urban Affairs
MONETARY POLICY IMPROVEMENT ACT OF 1979
HEARINGS
BEFORE THE
COMMITTEE ON
BANKING, HOUSING, AND URBAN AFFAIRS
UNITED STATES SENATE
NINETY-SIXTH CONGRESS
FIRST SESSION
ON
s.
85
TO AMEND THE FEDERAL RESERVE ACT TO PROVIDE FOR
MAINTENANCE OF RESERVES IN ORDER TO FACILITATE THE
IMPLEMENTATION OF MONETARY POLICY, TO PROMOTE COMPETITIVE EQUALITY AMONG DEPOSITORY INSTITUTIONS, TO
REQUIRE THE IMPOSITION OF SERVICE CHARGES FOR SERVICES BY FEDERAL RESERVE BANKS, AND FOR OTHER
PURPOSES
s.
353
TO FACILITATE THE DEVELOPMENT AND IMPLEMENTATION
OF MONETARY POLICY; TO REDUCE AND RESTRUCTURE
RESERVE REQUIREMENTS; AND TO PROVIDE FOR THE MAIN'l'ENAXCE OF RESERVES BY MEMBER BANKS AND OTHER
DEPOSITORY INSTITUTIONS IN EARNINGS PARTICIPATION
ACCOUNTS AT THE FEDERAL RESERVE BANKS
FEBRUARY 26, MARCH 26, 27, 28, AND MAY 14, 1979
Printed for the use of the Committee on Banking, Housing,
and Urban Affairs
U.S. GOVERNMENT PRINTING OFFICE
44-240 0
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Federal Reserve Bank of St. Louis
WASHINGTON : 1979
COMMI'ITEE ON BANKING, HOUSING, AND URBAN AFFAIRS
WILLIAM PROXMIRE, Wisconsin, Chairman
JAKE GARN, Utah
JOHN TOWER, Texas
JOHN HEINZ, Pennsylvania
WILLIAM L. ARMSTRONG, Colorado
NANCY LANDON KASSEBAUM, Kansas
RICHARD G. LUGAR, Indiana
HARRISON A. WILLIAMS, JR., New Jersey
ALAN CRANSTON, California
ADLAI E. STEVENSON, Illinois
ROBERT MORGAN, North Carolina
DONALD W. RIEGLE, JR., Michigan
PAULS. SARBANES, Maryland
DONALD W. STEWART, Alabama
PAULE. TSONGAS, Massachusetts
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Federal Reserve Bank of St. Louis
Staff Director
Minority Staff Director
STEVEN, M. ROBERTS, Chief Economist
ANTHONY T. CLUFF, Assistant Minority Staff Director
JOHN T. CoLLINS, Special Counsel to the Minority
KENNETH A. McLEAN,
M.
DANNY WALL,
(II)
CONTENTS
Page
s. 85....................................................................................................................................
s. 353 ··································································································································
83
97
LIST OF WITNESSES
26, 1979
G. William Miller, Chairman, Board of Governors, Federal Reserve System .....
6
MONDAY, FEBRUARY
MONDAY, MARCH 26, 1979
Baltasar Corrada, Resident Commissioner from Puerto Rico to the United
States, accompanied by Rick Rubin, legislative aide .. ..... .............................. ..... ..
Raymond Campbell, president, Oberlin Savings Bank, Oberlin, Ohio, and
President, Independent Bankers Association of America; E. D. "Jack" Dunn,
commissioner, Banking and Finance, State of Georgia, and president,
Conference of State Bank Supervisors, accompanied by Dr. Lawrence E.
Kreider, executive vice president-Economist of the Conference, and Thomas
F. Bolger, McHenry State Bank, McHenry, Illinois, and First Vice President,
IBAA...............................................................................................................................
Roy Hollihan, manager, Redstone Federal Credit Union, Huntsville, Alabama,
and President, National Association of Federal Credit Unions .........................
Albert B. Hooke, president, the Community Savings Bank, Rochester, N.Y., and
chairman, Committee on Liaison with Federal Agencies for the National
Association of Mutual Savings Banks, accompanied by Dr. George Hane,
senior vice president and chief economist, National Association of Mutual
Savings Banks...............................................................................................................
Robert B. O'Brien, Jr., president, Carteret Savings & Loan, Newark, N.J., and
vice chairman, Legislative Steering Committee for the National Savings &
Loan League .................................................................................................................
David Wright, chairman, Credit Union National Association, Inc .......................
TUESDAY, MARCH 27, 1979
Robert Carswell, Deputy Secretary, Department of the Treasury ........................
Robert H. McKinney, Chairman, Federal Home Loan Bank Board .....................
b-lan _Mille_r~ Dep_uty Chairman, Feci_eral Deposit Insurance Corporation ..... .......
Lawrence Connell, Administrator, National Credit Union Administration........
WEDNESDAY, MARCH 28, 1979
Daniel K. Inouye, U.S. Senator from the State of Hawaii.......................................
Dennis Ching, chief executive officer, American Security Bank, Honolulu,
Hawaii, and president of the Hawaii Bankers Association, accompanied by
Hugh Pingree, vice president, First Hawaiian Bank; and Thomas Hitch, vice
president and economist, First Hawaiian Bank, Honolulu, Hawaii ............ ......
Henry B. Schechter, director, Department of Urban Affairs, AFL-CIO...............
Jon Brown, staff attorney, Public Interest Research Group ...................................
John Perkins, president, Continental Illinois National Bank and Trust Co.,
Chicago, Ill., and president, American Bankers Association, accompanied by
A. Gilbert Heebner, executive vice president and economist, Philadelphia
National Bank, and chairman, Economic Advisory Committee for ABA; and
Robert W. Renner, president, Citizens State Bank of Hartford City, Ind., and
chairman, community bankers division for the ABA ..........................................
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Federal Reserve Bank of St. Louis
IIII)
338
361
462
468
484
496
519
533
537
540
558
560
591
596
604
IV
MONDAY, MAY 14, 1979
Phillip Cagan, Department of Economics, Columbia University............................
Stuart I. Greenbaum, Director, Bank Research Center, Graduate School of
Management, Northwestern University..................................................................
Almarin Phillips, Department of Economics, University of Pennsylvania..........
Dennis R. Starleaf, Department of Economics, Iowa State University ................
Page
704
708
760
769
ADDITIONAL MATERIAL SUBMITTED FOR THE RECORD
American Banker Association:
ABA economic advisory committee from A. Gilbert Heebner.........................
ABT Associates Inc., interim summary report to the ABA leadership
conference .... .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. ... .... .. .. .. .. ..... .. .. .. .. .. .. .. .. .. ... .. ..... ... .. .. .. .. .. .. .. ....... .. .
Conference on reserve requirements and the role of the Federal Reserve
=._............._.....................
System .... ,........... '. ..
- Federal reserve membership issue and monetary policy report ..
Memorandum, ABT simulation of ABA proposal on Fed-membership ........
Memorandum, The Fed's error about nonmember banks on monetary
policy.......................................................................................................................
Minutes of the Economic Advisory Committee meeting, Jan. 18-19, 1979 ..
Statement on S. 85 and S. 353 ...............................................................................
Bankers Magazine, article entitled "Where Does American Banking go From
Here?" oy Henry C. and Mable I. WallicFi.............................................................
Comptroller of the Currency, letter to Senator Proxmire from John G. Heimann
Conference of State Bank Supervisors, positions paper entitled "Optional
Affiliation with the Federal Reserve System for Reserve Purposes is Consistant with Effective Monetary, Policies," by Professor Ross M. Robertson,
University of Pennsylvania, and Professor Almarin Phillips, University of
Indiana ..........................................................................................................................
Federal Reserve System:
"The Need for Reserves," article submitted for the record .............................
"The Effect of Interbank Deposit Flows on Monetary Control," memo
submitted for the record ...... ........................ ................... ............ ................ ..... ...
Proposals to facilitate the implementation of monetary policy and to
promote competitive equality among depository institutions......................
Benefit to banks covered by modified S. 85 ........................................................
"Changes in Major Sources of Tax, Savings for Banking Organizations:
1969-1977," a study by the staff of Research and Statistics of the Board of
Governors of the Federal Reserve System ......................................................
Independent Bankers Association of America:
Telegram to Senator Garn .....................................................................................
Mailgrams to Conference of State Bank Supervisors........................................
Statement ..................................................................................................................
=
..............................................
~:.~=-:-.:....
- Jour~~1~1 r~~~;~~~:··~rti~i~ ... ~~titi~···r.N~~~~~i~·~···s~~·~....~~d···M~~~~;~
Control," by Dennis R. Starleaf ................................................................................
-- - Letters to Senator Proxmire from: American Bankers Association, Charles 0. Zuver, counsel ............................
Bank of Delaware, statement from Jeremiah P. Shea, president ..................
Federal Deposit Insurance Corp., from Alan R. Miller, deputy to the
chairman .. .. ... .. .. ......... .. ... .... .. .. ... .... .. .. ..... .. .. ..... .. .. ... .. .. ... .. .. .. .. ... .. .. .. .. .. ......... .. ... .. ..
Federal Home Loan Bank Board, from Robert H. McKinney, chairman .....
Governor of Hawaii, George R. Ariyoshi ............................................................
House of Representatives, State of Hawaii, with House Resolution No. 204,
George M. Takane, clerk.....................................................................................
Investment Company Institute from David Silver, president.........................
Memorandum, Legislative standards for membership in the Federal
Reserve System from Albert Gailord Hart, professor emeritus of
economics, Columbia University.......................................................................
New York Clearing House from Walter H. Page, chairman...........................
Puerto Rico:
Total gross domestic investment ..........................................................................
Personal income and bank loans...........................................................................
Under proposed legislation.....................................................................................
Relationship of aggregate construction expenditures to aggregate personal
income....................................................................................................................
Memorandum ...........................................................................................................
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Federal Reserve Bank of St. Louis
802
654
814
803
665
675
810
618
411
337
381
21
22
102
129
51
447
441
452
460
420
801
1103
553
543
575
577
1082
1099
1101
355
356
356
357
358
V
Reserve requirements, Federal Reserve membership, and monetary control, by Page
Clark Warburton ......................................................................................................... 1086
U.S. League of Savings Associations, comments on S. 85 ........................................ 1070
TABLES, CHARTS, AND ILLUSTRATIONS SUBMITTED FOR THE RECORD
Aggregate burden as percent of estimated 1977 domestic pretax earnings .........
All insured commercial banks.......................................................................................
Application data 1978 .....................................................................................................
Assets, financial institutions ... ..... .. ............ ................. .. .. .. ....... ..... ... .. ........ .. ..... .. ..... .. .. .
Bank deposit coverage ....................................................................................................
Banks grouped by impact of the 1978 Proxmire bill, S. 3485 .................................
Construction......................................................................................................................
Coverage of deposits on all institutions ......................................................................
Estimated impact of proposed bill S. 85 to increase Federal Reserve
requirements of Hawaii banks ..................................................................................
Estimated revenue effects of S. 85................................................................................
Federal Reserve System:
Standard deviation of random deposit flows between member and
nonmember banks ........ ..... .. .. ...................... .. .. ....... .. ..... ........ ..... .. ....... ............. .. .
Sources of tax savings and Federal tax rates of banking organizations:
Base income includes municipal bond interest income.............................
Base income exclude municipal bond interest income .............................
Size of classes: 1974 .........................................................................................
20 large banking organizations ... .. ........................ ....... ....... ............ ....... .......
Effective Federal tax rates on bank worldwide income net of shifted
municipal bond tax savings ...............................................................................
The sources of tax savings and Federal tax rates of banking organizations
(chart 1) ..................................................................................................................
The effect of the alternative treatment of municipal bond income on the
sources of tax savings and Federal tax rates of the banking organization
(chart 2) ..................................................................................................................
Relative interest rates and commercial bank holdings of municipal bonds
(chart 3) ..................................................................................................................
Long-term interest rates (chart 4).........................................................................
Percent of outstanding State and local securities held by commercial banks
(chart 5) ..................................................................................................................
Construction of effective tax rates and sources of tax savings .......................
Percentage errors in monthly M1 growth rates associated with standard
errors of the random interbank deposit flows................................................
Effect of member bank attrition on short-run predictability of monetary
aggregates..............................................................................................................
Precentage of U.S. Commercial banks and deposits in the Federal Reserve
System....................................................................................................................
Estimated burden of Federal Reserve membership...........................................
NOW accounts as percentage of -household deposit balances in New
England .... ....... ........... ....... ......... .. ........ ......... .. ..... .. ..... .. ....... .......... ........ ..... ......... ..
Percentage of New England commercial banks and deposits in the Federal
Reserve System ..... .. ..... ......... ....... .. .. ........ ....... .. .. ... .. ............ ........ ... ....... ....... .. .....
Rapid growth of ATS accounts nationwide and NOW accounts in New York
State.......................................................................................................................
Effects of proposals on commercial banks...........................................................
First Hawaii bank, float analysis ................ ....... ......... ..... .. ..... ..... ... ... .. ..... ..... .. ......... .. .
Hawaii's balance of indebtedness.................................................................................
Membership burden as a percent of 1977 pretax earnings for sixth district
member banks ... .............. ..... ....... ........... ...................... .. ..... ..... ..... .......... .............. .......
Monetary multiplier ratios ............................................................................................
Net impact of the 1978 Proxmire bill on profits of banks, by State ......................
Personal income and bank loans .......... .. ...... ....... .. ..... .. ..... .......... ....... ..... ..... ..... ....... .. ..
Proposed bank reserves as percent of Hawaii's gross State product, compared to
United States................................................................................................................
Return on investments ...................................................................................................
The monetary multiplier ...............................................................................................
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Federal Reserve Bank of St. Louis
653
554
533
587
692
589
584
693
581
526
25
66
67
68
69
70
71
72
73
74
74
78
25
122
123
124
125
126
127
128
588
586
653
399
579
583
582
585
400
MONETARY POLICY IMPROVEMENT ACT OF
1979
MONDAY, FEBRUARY 26, 1979
U.S. SENATE,
COMMITTEE ON BANKING, HOUSING, AND URBAN AFFAIRS,
Washington, D.C.
The committee met at 10:05 a.m. in room 5302, Dirksen Senate
Office Building, Senator William Proxmire, chairman of the committee, presiding.
Present: Senators Proxmire, Morgan, Stewart, Tsongas, Garn,
Tower, Kassebaum, and Lugar.
OPENING STATEMENT OF CHAIRMAN PROXMIRE
The CHAIRMAN. The committee will come to order.
Mr. Chairman, my statement will take a few minutes and I
suggest you be seated because I think Senator Tower may have a
statement too and perhaps Senator Kassebaum.
The committee is beginning its consideration of legislation to
deal with the problems associated with the erosion of membership
in the Federal Reserve System. There are several bills that have
been introduced: S. 85, which is my bill; S. 353, which is Senator
Tower's bill. The Federal Reserve Board has also taken a slightly
different approach and there's a House bill approach.
The Federal Reserve is the Nation's central bank and its primary
responsibility is the formulation and implementation of monetary
policy. That role was not really envisioned when the Federal Reserve System was set up in 1913 as basically a central clearing
bank to establish a nationwide network for the efficient clearing of
payments. Membership was made voluntary in 1913 because not all
banks needed to be associated with the Federal Reserve for the
development of an efficient payments mechanism.
But the Federal Reserve's responsibilities have changed. Is the
Federal Reserve's structure now appropriate for the Nation's central bank? Is voluntary compliance with reserve requirements appropriate and consistent with the needs of the Fed to conduct
monetary policy? Should access to the Federal Reserve's discount
window be extended to nonmembers to enhance the safety and
soundness of the banking system and on what basis? Should Federal Reserve services be provided on the basis of price rather than
membership status? Is the position of nonbank thrift institutions in
the payments mechanism and financial markets sufficient to warrant their participation in the central bank and in monetary policy
considerations? Should interest payment on reserves at the Federal
Reserve banks be authorized by Congress?
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Federal Reserve Bank of St. Louis
(1)
2
The membership problem has been a concern of the Federal
Reserve Board and the System for some time. Policy issues which
now come before the Federal Reserve Board may too often pose the
question: What impact will the solution to this issue have on
membership? For example, if access to the discount window is
important for the safety and soundness of the banking system, is it
appropriate for the Federal Reserve to be forced to say we cannot
make that access available to nonmember banks because the membership problem would worsen and monetary policy implementation would therefore be compromised. In the same way, the membership problem compromises the pricing of services and regulatory issues.
Mandatory universal and uniform reserve requirements offer one
solution. It would allow open access to the discount window and to
Federal Reserve bank services and permit the pricing of those
services on a market basis.
This would also permit lowering the cost of reserve requirements
by reducing them. However, reduced reserve requirements will
result in lower earnings for the Fed and thus less revenue to the
Treasury and less for the taxpayer. The committee has an obligation to protect Treasury revenues and the taxpayers of this country
and to guard against outright transfer of funds from the Treasury
to the banks. Such transfers would result in an increased Federal
deficit which in today's inflationary environment must be held as
low as possible.
The payment of interest on reserves must be examined very
carefully. There is no precedent for this in the history of the
Federal Reserve. There is no authorization for interest payments
on reserves that, must come from the Congress. I have opposed
interest payments on reserves and continue to be skeptical of the
idea because even payment of a _modest amount of interest would
set a precedent that would be an invitation to larger and larger
transfers of funds from the Treasury to the banks. The American
Bankers Association issued a statement last week saying:
The Fed should establish and put into effect immediately earnings participation
accounts at the Fed's portfolio rate on the first $10 million of each member bank's
reserve balances. Participation in such earnings participation accounts covering
balances in excess of $10 million should be considered when monetary, economic,
and other factors make such action desirable.
Well, the cost of doing that would amount to $1.5 billion before
taxes. Commercial banks' Federal income tax liabilities have been
consistently far lower than other American corporations.
I hope that with your help, Chairman Miller, that we can find a
permanent solution to the problem of securing reserve requirement
coverage of a broad deposit base. I hope we can do that without
large cost to the Treasury.
A practical solution should not be difficult. It can improve monetary policy, provide greater equity among depository institutions,
increase profits for the banks, and cost the taxpayers relatively
little.
Th~ last thing this country needs is another spending program,
read it-another program that will cost the taxpayer money.
Now it's one thing to propose a program that would provide more
money to welfare mothers or handicapped citizens or the infirm
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Federal Reserve Bank of St. Louis
3
elderly. Frankly, I would oppose those programs too at this time.
But how then could I support this new program to hand out hundreds of millions of dollars of money from the Treasury to the
banks?
We have, to this country's credit, never paid interest on required
reserves, for the very good reason that to require reserves is a
small price to pay for the immense benefit banks enjoy with their
charter, their authority to lend, their protection from competition
through limited access to banking.
Until this issue of Federal Reserve membership arose, even the
banks never seriously tried to persuade the Congress to authorize
the payment of interest on reserves. There was no respectable
economic thought saying that such an expenditure by the taxpayer
was desirable or necessary.
But once this program is opened up-watch out. Yes, indeed,
initially the cost will be only a few hundred million but like every
other Federal exenditure it will balloon. And what is worse, I can
hear the arguments now:
Senator, if you can pay hundreds of millions to the banks in interest on reserves,
when we didn't pay them anything on their reserves for 200 years, why can't you
pay more for the poor, the blind, the lame, the small farmers, the needy student,
and so forth?
There's no end to it.
No matter how we disguise such a program, it's really welfare
for the banks, subsidy for the banks, based on a pitifully weak case.
Here is the industry that year after year pays the lowest taxes of
any major industry in the country to the Federal Government, and
embarrassingly low State taxes. Here is an industry that is right
now enjoying a fat increase in profits, certainly among the highest
increase in profits of any industry. Here is the one industry which
has been in effect exempted from the President's price guidelines,
although it enjoys the benefit of being able to hold down its costs
by being subject to the President's wage guidelines.
Here is an industry that enjoys the advantage of Federal law
that prohibits paying any interest on demand deposits, which
means that the Federal Government by law requires that much of
the funds the banks have available to lend out at interest costs the
banks virtually nothing.
Here is an industry that enjoys another Federal law that, with
regulation Q, limits to 5 percent the interest banks can pay on
passbook savings deposits which again limits the banks' cost and
means the banks can enjoy a margin now exceeding 100 percent on
much of their savings deposits.
Here is an industry that enjoys still another Federal law that
limits the rate of interest that the banks can pay on some longer
term deposits and, again, in effect, guarantees another happy profit
margin on much of the rest of the bank's borrowed funds.
But how about a law to limit the rate of interest banks can
charge, and thus would limit the bank's profits. Of course, there is
no such law and frankly there should not be one. If there were
such a law, it would require the allocation of credit which I strongly oppose. But consider what this means. It means that while every
other industry in the country is subject to the profit-margin test on
profits or a 6-percent guideline on price, the banks alone are
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Federal Reserve Bank of St. Louis
4
exempt. They are home free. They alone are subject to no price or
profit limit. Now what is the consequence of all this?
It means the bankers are asking for a brand new precedent. For
the first time in 200 years, their proposal would require the hardhit Federal taxpayer to forgo hundreds of millions of dollars that
would now for the first time be paid to the banks in interest on
reserves.
Talk about economic justice, talk about targeting scarce Federal
funds to those who really need it. We are being asked to sock the
taxpayer in this year-one after proposition 13 to pay to bankersbankers-bankers these funds when the law now shelters bankers
from competition, when the law prohibits you from making a
nickel in interest from the banks on your demand deposits, when
the law flatly limits the amount you can be paid on a savings
account, when the law-in this period of sky-high interest rates
thus guarantees beautiful bank profits which alone of all industries
are exempt from profit guidelines when the law is so structured
that the Federal and State taxes on banks are so small as to be
almost invisible without a microscope, we are asked now for the
first time to pay banks interest on reserves.
I say: No way. It would be the Golden Fleece to end all Golden
Fleeces, the rip-off of the year.
Having said all this, I will support the payment of interest on
reserves if we revise the law on entry into the banking business to
make it conform with entry in other businesses, if we abolish the
prohibition of interest on demand deposits, if we abolish regulation
Q, and if we arrange some kind of a franchise tax to recognize the
advantage banks have in investing in tax exempt Government
obligations so they pay taxes comparable with other industries.
When that day comes, I will be happy to support such a bill. Until
that day comes, you will find me doing all in my power to forestall
this all-time rip-off.
But if the banks simply want a bill which will result in lower
reserve requirements, and therefore higher profits, and will at the
same time give the Federal Reserve the universal reserve requirements they need, they will have my support and we can enact such
a law promptly.
Senator Garn.
Senator GARN. I have no opening statement, Mr. Chairman. I
would reply very briefly to your statement, however, without getting into detail, because you and I might go on for hours and we
might not be able to hear Mr. Miller.
I think it's a gross overstatement of the position of the banks and
their profit margins and an attack that I think is unwarranted.
That's all I have to say at this point.
The CHAIRMAN. Senator Tsongas.
Senator TsoNGAS. No statement.
The CHAIRMAN. I want to introduce Senator Tower. He was, after
all-it's not every committee that has Superman on it. I was going
to say, "Is it a bird? Is it a plane? No, it's Supertower." We are
delighted to have the distinguished Senator from Texas. [Laughter.]
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Federal Reserve Bank of St. Louis
5
STATEMENT OF SENATOR TOWER
Senator TOWER. Thank you, Mr. Chairman, and I will later express my thanks to the Washington Post for having covered that
event.
I do have a rather mild opening statement. I'm sorry that it is so
mild, considering the chairman's opening statement. I was under
the impression that our late lamented colleague, Wright Patman,
had gone to his reward, but apparently he's in the back room
somewhere writing our chairman's speeches for him.
The CHAIRMAN. I couldn't have a better ghost.
Senator TOWER. It's perhaps good old dogmatic populist sentiment, but I think that the chairman has engaged in a little highflown rhetoric that doesn't get to the substance of the issue.
During the course of these hearings the committee will be considering two clear-cut alternatives to solving the Fed membership
problem. One alternative contained in S. 85, which the chairman
has introduced, is mandatory in that it would require all banks and
thrift institutions over a certain size to hold reserves with the Fed.
The other contained in S. 353, which I have introduced, would
maintain the present system of voluntary membership in the Fed
and allow the Fed to pay interest on reserves. Both bills would
reduce reserve requirements and require they be applied uniformly
on all banks within certain deposit categories.
I am greatly concerned, however, over the mandatory approach.
It represents a significant break with the present system of voluntacy membership. Perhaps if we were_ starting from scratch, such
ari approach would be desirable, but we're not. There are a large
number of nonmember banks which have decided not to be members of the Fed and for good reason. Member banks are required to
hold reserves in the form of nonearning assets. This is a discriminatory tax on their earnings. The mandatory approach would require a number of nonmember banks in my State and elsewhere to
hold reserves in the form of sterile assets of the Fed adversely
affecting their income and their ability to continue serving their
community.
I believe it would be preferable to solve this problem within the
present system of voluntary Fed membership and my bill would
solve it by reducing the reserve burden of membership and encourage rather than mandate that banks hold reserves at the Federal
Reserve.
I will be very interested in having the witnesses who appear
before this committee respond to the question of whether or not
the approach in my bill will solve the Fed membership problem. If
banks are leaving the system because of the burden of reserves,
then why not eliminate the burden through a reduction in reserves
and the payment of interest on reserves? If equity is important,
wouldn't the payment of interest on reserves remove the existing
inequities by allowing member banks to earn a rate of return on
their reserves just as nonmember banks are allowed to do?
Obviously, Treasury revenues are a consideration, but the requirement that member banks hold reserves in the form of sterile
assets is, again, a discriminatory tax on those banks. I believe it
would be preferable to avoid such discrimination in gaining Treas
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Federal Reserve Bank of St. Louis
6
ury revenues and, if necessary, make up the difference elsewhere
or reduce Federal outlays accordingly.
I believe the approach in S. 353 solves the Fed membership
problem in a straightforward manner that is equitable and it
avoids the traumatic change in the banking system that mandatory
membership involves.
Let me again say that the payment of interest on reserves is not
a subsidy. It is not a handout to the banks. It simply represents the
removal of a discriminatory tax that is now levied against the
banks.
Thank you, Mr. Chairman.
The CHAIRMAN. Senator Kassebaum.
Senator KASSEBAUM. No, thank you, Mr. Chairman.
The CHAIRMAN. Senator Lugar.
Senator LUGAR. No comment.
The CHAIRMAN. Mr. Chairman, go right ahead, sir.
STATEMENT OF G. WILLIAM MILLER, CHAIRMAN, BOARD OF
GOVERNORS, FEDERAL RESERVE SYSTEM
Mr. MILLER. Thank you very much, Mr. Chairman.
I would ask your permission to include the prepared testimony
submitted to the committee and the attachments to it in the
record.
The CHAIRMAN. Without objection, the entire statement will be
printed in full in the record (see p. 102).
Mr. MILLER. Instead, of going through the prepared testimony,
Mr. Chairman, we have placed before each member of the committee a set of talking points and charts. I would like to guide you
through them as a means of addressing the issues this morning.
First, I'd like to express my appreciation to this committee for
the priority which has been assigned to this matter in this session.
The matter of the decline of membership in the Federal Reserve
System is an issue that's been under consideration for several
years. There have been a number of reasons why over the last 5 or
6 years there has been an increasing rate of attrition in membership, and a number of important issues have been raised and
discussed in many forums, including before the Congress.
Last year, when I became Chairman of the Federal Reserve, it
seemed important that we join together in addressing this issue
and try to find a solution that would be equitable and workable
and improve the monetary system at a critical time in our Nation's
history.
I might remind the committee that the approach we took last
year in this regard was to submit, at mid-year-the first opportunity since assuming my chairmanship-a set of proposals to address
the issue. The principles that we set forth were: first, a reduction of
reserve requirements within the present statutory limits; second,
authorization to pay a limited amount of interest on reserves; and
third, a proposal to charge for services provided by the Federal
Reserve. Under that proposal, the payment of interest coupled with
charging for services would have limited the net reduction of Federal Reserve earnings to 7 percent so as to provide a control
mechanism on any reduction of Treasury revenues.
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A fourth element of our proposal, at that time, was for the
Federal Reserve to reimburse the Treasury over a transition
period, so that there would be no immediate budgetary impact.
I must say we were extremely pleased with the willingness of
this committee to address the issue. The chairman of this committee and the chairman of the House committee introduced proposals
that look to universal reserves and uniform reserves as alternatives to the proposals we made last summer. Those proposals are
consistent with the recommendations of every commission that has
studied banking since the 1930's, and we were pleased to shift from
our original approach, which primarily involved operating within
the present statutory structure. We have been engaged, since that
time, in working with committee staffs and with committee members to study these issues and develop a response.
Since time ran out in the last Congress, it was not possible to
resolve this matter, but it was agreed that this would be a high
priority in the new Congress, for which we are most appreciative.
In the interim, we have been endeavoring to assess the legitimate
concerns of all affected constituencies, to come forward with responses to those concerns, and to find the most equitable, the
soundest system possible, one that addresses the issue of fairness
while looking at the public interest.
This year, we are proposing what we call a monetary improvement program. It involves not only the legislative issues pending
here, but our determination to improve monetary policy implementation in other ways. For example, we are ~w seeking comments
and input from all those who are interested and knowledgeable as
to the definition of the monetary aggregates. These have not been
redefined in recent years and the current definitions, seem to be
out of keeping with the actual functions of money in today's economy. So we are addressing this issue.
But today, we are looking only at legislative matters. If you turn
to page 2, we list our objectives for this initiative: (1) to promote
equity in the competition among depository institutions and (2) to
improve the effectiveness of monetary policy.
Let me just first speak briefly about monetary policy on page 3.
Our first objective in the proposals being considered here is to
improve predictability with respect to the monetary aggregates. At
the present time, deposits move in an unpredictable way among
members and nonmembers, among whom reserve requirements
differ. Because we cannot predict how deposits will flow, there is a
certain degree of looseness in predicting the effects of monetary
policy action.
Now I might point out that there are other reasons for unpredictability of the monetary aggregates. When deposits move from
one category of deposit to another, or from a small institution to a
large institution, reserve requirements also change. As you know,
we h e a g aduated system of reserves now. If a demand deposit
moves from a small member bank, to a large member bank, the
reserve requirement may change. Likewise, if a deposit moves from
a savings to a time account, the reserve requirements may change.
But for today's discussion we are looking only at the effect of
deposits moving from a member bank, which has reserve require
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ments, to a nonmember bank, which has differing requirements or
none, and the degree of unpredictability that creates.
Page 4 shows that to the extent deposits are held outside of the
Federal Reserve System, the degree of unpredictability increases.
The horizontal axis goes from zero balances outside the Federal
Reserve, on the left, to 100 percent of deposits outside the Federal
Reserve, on the right. Today we are at the dotted line: it shows
that with roughly 30 percent of deposits outside the System, there
is a 6 percent lack of predictability. We can be wrong 3 percent in
either direction, for aggregate error of 6 percent, in our predictions
of the 2 month growth rates of the monetary aggregates.
The Federal Open Market Committee uses the 2-month projection as a means of setting its objectives, which is why we have
selected it. For this reason, any program that would increase the
amount of deposits subject to Federal Reserve reserve requirements
would greatly improve our ability to predict the monetary aggregates and, therefore, to implement monetary policy.
Looking at page 5, I might say there are some other reasons why
the approach being suggested would improve montary policy. One
is that, with the problem of attrition, the Federal Reserve has felt
itself somewhat constrained in changing reserve requirement
ratios. If there is a desire to increase them, that would increase the
burden of membership and accelerate the decline in membership.
So it would greatly improve our flexibility in using reserve requirement ratios as a monetary policy tool if there was a system of more
uniform or universal reserves, with an impact more equitably
spread over the entire financial system.
Another reason that the proposal before this committee would
improve monetary policy is in providing access for all financial
institutions to the discount window. In times of adjustment in
liquidity for whatever reasons-because of tight money policies,
because of sudden shifts-we need to be able to adjust portfolios of
depository institutions smoothly to keep the economy working
smoothly. The availability of the discount window would add a
degree of certainty to the process and would enhance our ability to
impose monetary policy without causing disruption in the financial
community or in the economic system.
Another -reason the proposal improves the system is, of course,
that the Federal Reserve is the insurer of the workings of the
payments mechanism: the Nation's central bank provides the ultimate security that payments are safely and efficiently cleared and
that the payment system works. To the degree that more and more
banks move outside the System, and more and more clearing banks
become nonmembers, there's always the problem that a difficulty
in liquidity in a nonmember clearing bank could have a ripple
effect and impair the liquidity of all those banks that clear through
it. The Federal Reserve as a backup gives greater assurance of
safety and efficiency in this area.
Mr. Chairman, members of the committee, these are some of the
issues that I'm summarizing from the testimony that would improve in monetary policy implementation. There is definitely, in
our view, a need for corrective action. The main reason for the
need is the decline in membership. On page 7 you can see the trend
in the decline in the percent of banks participating in the Federal
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Reserve System, and the decline in the percent of deposits subject
to Federal Reserve requirements. The dotted lines project what we
can expect from continuing attrition, both in percent decline in
banks and percent decline of deposits. The upper dotted line projects a continuation of the experience we have seen in recent years;
the lower dotted line projects experience parallel to that in New
England. With the introduction of NOW accounts and other new
devices in New England, there was more competition, more relative
burden on membership, and a more rapid attrition. Ten years ago,
New England had a higher percentage of member banks and a
higher percentage of deposits subject to Federal Reserve requirements than another other region. Now, it has one of the lowest,
because of these competitive developments. These have been limited to that part of the country until recently, but are now spreading
elsewhere. So we could expect to see the trend somewhere between
these two dotted lines in the future.
There's also a need for corrective action because of the burden of
membership. The loss of income on nonearning reserve balances,
adjusted for the benefit that these members receive from Federal
Reserve services provided without charge, amounts to $650 million
in 1977 pre-tax dollars. That is, the difference between what reserve balances could have earned in 1977 had these banks been
nonmembers and the value of the services we provided, is $650
million, which is equal to 9 percent of pre-tax earnings.
This creates to a degree an inquitable tax, falling on some banks
and not others, which illustrates our difficulty.
Another point worth noting is that this burden of membership
falls heaviest on smaller member banks. Our estimate of 9 percent
of pre-tax earnings is an overall figure; for small banks-shown in
the bars on the left of the charts on page 10-you will see that the
figure is over 20 percent of pre-tax earnings; for medium-sized
banks it's 15 or 16 percent; and for very large banks it declines to 7
or 8 percent. So the burden falls heaviest on smaller members and,
in our view, this is particularly troublesome. It is something we
cannot correct easily under the present statutory structure which
has a minimum reserve requirement of 7 percent; we are already
at that minimum, so we can't do anything by way of reducing
reserve requirements to aid small banks any more under the present structure.
There's also the subject of competitive equality. I said we had
two objectives in mind. One is to improve monetary policy. The
other is to assure greater competitive equality. I might point out
that in endeavoring to address this subject we, as others, recognize
that we are not starting from scratch. We have a system that's in
being. We are not back in 1913 when we were setting up the
Federal Reserve System, so we may not be able to achieve the ideal
of perfect equality and perfect equity. But, looking at the affected
constituents, we certainly can try our best to create a sounder
system and a better system while removing, to the degree we can,
any inequality in the competitive environment.
Member banks now face not only a competitive inequality as
against nonmember banks, but also a growing competitive inequality as against thrift institutions, which are more and more gaining
powers as to transactions-type accounts. Other powers are being
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sought as well, so that more and more thrift institutions are gaining some of the powers previously reserved to banks and becoming,
so to speak, across-the-street competitors. To that degree, possibility of even greater inequality, unless we address this issue now, is
growing.
Now some of the competitive elements-page 12 contains only a
partial list-include the advent of NOW accounts. This is, in effect,
the permission to pay interest on certain demand deposits. It first
developed in New England out of a legal assertion by certain
thrifts of the power to issue negotiable orders of withdrawal, and
eventually led to NOW account authority for all of New England,
which led to a competitive situation that made membership even
more burdensome and resulted in higher attrition. We also have
point of sale terminals; we have credit union share drafts which
operate like checks; Federal savings and loans may soon have
available to them a payment order account which will be, in effect,
the same as a check; there is authority for telephone transfers and
for a whole series of new services evolving from the financial
system's efforts to serve people and businesses better.
But such competitive innovation, while certainly desirable, creates more inequality which threatens our system.
Looking at this from a monetary policy and from a competitive
equality point of view, what are some of the elements which would
move us toward a more ideal system? Some of these elements are
listed on page 13.
First, it would help both monetary policy and equality if there
were more uniform, more universal reserves at commercial banks;
and second, it would help if we extended reserve requirements to
transactions balances at thrifts, so that if they are involved in
these activities they are on the same basis as banks.
Both of those elements are contained in Senator Proxmire's bill,
S. 85. Senator Tower has put forward an alternative, and we very
much appreciate that because we want to look objectively at the
various options. His particular approach would not apply mandatory requirements but would continue a voluntary system.
The third element, reduction in reserve ratios, is proposed in
both bills. So I think we have agreement at least on some reduction
in requirements to relieve the burden on member banks.
A fourth element that the Federal Reserve has suggested is an
earnings participation account. I will explain later why we feel
that should be a supplement to these other elements.
Fifth, I think we all agree that if we solve the membership
problem there is an advantage-in terms of efficiency and economy-to introducing explicit charges for Federal Reserve services.
We will no longer be tempted to try to solve the problem by
providing free services, which may involve a poor use of our resources.
And sixth, any proposal we make should minimize the effect on
Treasury revenues, particularly in these times of austere budgets.
So we want to try to do all six of those things.
Let's talk for a moment about the proposed reserve requirements. On page 14, just to get the issues before us, we have taken
the S. 85 proposal and compared it with what the Federal Reserve
believes would be an improvement: call it MOD-85. It represents
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our suggestions for changes that we think would go further in
solving the problem. I will explain the reasons for these changes in
a moment.
S. 85, includes the concept of exemptions, so that large numbers
of smaller institutions would not bear any reserve requirements,
even with uniform, universal reserve requirements. The exemption
proposed in S. 85 is $40 million of transactions accounts and $40
million of total time and savings deposits. We believe that if each
of those two exemptions were increased to $50 million-particularly if our earnings participation account concept is accepted-we
could still get the coverage we need and further reduce the burden
to financial institutions so that there would be more equality in the
system. We are suggesting some adjustment in the particular ratios
that have been proposed. In some cases they are not very much
different from S. 85. But we are concerned about too heavy a
reserve requirement on transaction accounts, because this represents a continuing high cost to financial institutions and not, in
our opinion, enough of a reduction in burden.
The CHAIRMAN. Mr. Chairman, I hate to interrupt your narrative. Could you add one factor here, a cost comparison?
Mr. MILLER. Yes, I will come to that in just a moment.
The CHAIRMAN. I thought right on that table it would be good to
have them together.
Mr. MILLER. I will get to that; I certainly want to face it squarely.
As to the idea of the earnings participation account, first, let me
explain how it works and then why it makes sen:se. Chart 15 takes
the deposit category of transaction accounts, the left bar indicates
how an earnings participation account would work.
In the first place, we would exempt completely the first $10
million of deposits, so many very small institutions would have no
reserve requirement on deposits at all. For deposits over $50 million, the top part of the bar, there would be required reserves.
Between the $10 million and the $50 million is where we would say
we need a supplement to the required reserve structure. Institutions would place deposits with the Federal Reserve that would
participate in our portfolio and accrue interest at our portfolio
rate. So this does not change the concept of required reserves; it
supplements the concept.
Our reason for doing this is shown on the next chart. Currently,
about 73 percent of deposits are in the Federal Reserve System;
under S. 85, with the $40 million exemption in each category about
75 percent of deposits would be covered.
Under our proposal 1 using the EPA, we could cover 94 percent of
deposits, but with no more impact on the earnings of banks than
under S. 85 because we would be paying the portfolio rate on these
additional deposits. The coverage of those deposits would give us
the monetary predictability we need.
So our proposal tries to combine the concept of broader coverage
of deposits with the idea of minimizing the impact upon bank
earnings-that is, not taxing those particular deposits, if you look
upon non-earning reserves as a tax. It would give us greater coverage without burdening the banks.
44-240 0 - 79 - 2
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Let's look at the next table which shows how this would affect
reserves. We have taken December of 1977 as a point of comparison. At that time, required reserves maintained with the Federal
Reserve were about $27 billion. We have then compared the effect
of S. 85 with the effect of the proposed modifications that we would
suggest.
Under S. 85, the reduction in required reserves for member
banks would be $10.5 billion. MOD-85 moves the exemption level
up from $40 million to $50 million and contains slightly lower
ratios; so our proposal would reduce required reserves for member
banks by $13.9 billion. If we institute universal reserves, S. 85
would require reserves for non-member banks of $2.2 billion; our
proposal would require $1.7 billion. The net reduction in required
reserves under S. 85 would be $8.3 billion. Under our proposal, the
net reduction would be $12.1 billion. The new level of required
reserves, then, would be about $19 billion under S. 85; and under
MOD-85, $15.1 billion.
Now, in addition to that $15.1 billion of non-earning reserves, we
would also require institutions to maintain $5.9 billion with the
Federal Reserve in an earning participation account which would
pay the portfolio rate. They would thus get a rate nearly equivalent to what they could otherwise expect from their liquid assets
year after year.
So the differences are mainly: about a $4 billion additional reduction in required reserves; plus the concept of an earnings participation account.
Looking at earnings improvement, on page 18, under S. 85, the
pre-tax earnings of banks would improve by $133 million, if we
assumed that this whole program was totally in effect in 1977. (I
will speak in a moment about the effect of phasing the program in,
but for now just assume the whole thing goes into effect at one
time. If the program had been totally in effect in 1977, bank pretax earnings under S. 85 would have been increased $133 million.
With the modifications we suggest, bank earnings would be increased $384 million. I'll speak later of the net cost to Treasury;
this chart shows just bank earnings.
By the way, MOD-85 is the same proposal we made to the House,
so the figures are the same.
Let's look at the number of institutions affected, on page 19.
Currently, there are 5,664 member banks, all covered under the
present system. Look down that first column for a moment: we are
not covering 8,954 non-member banks and we are not covering over
27,000 thrift institutions now. We have 5,600-plus member banks,
and we don't cover anybody else.
Under S. 85, 1,252 member banks would be covered; 707 nonmember banks would be covered; and 2 thrift institutions would be
covered. The rest would not be covered.
Under our proposed modification, 3,893 member banks would be
covered, compared to the present 5,664; 4,015 non-member banks
would be covered; and 48 thrift institutions would be covered. The
rest would not be covered.
But if you turn to the next page you will see what coverage
means. Under the present system, of our 5,664 members, all but 59
maintain reserves with the Federal Reserve; those 59 are able to
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cover their reserve requirements with vault cash. (Reserve requirements of the Federal Reserve are met first, by vault cash and to
the extent vault cash isn't sufficient, by balances held with the
Federal Reserve. In the present situation, 59 institutions are covered with vault cash; 5,605 maintain reserves.
First, let me point out that in MOD-85, as we have said before,
we would have a greater number of institutions covered. But most
of those-4,324-would cover their requirements with vault cash;
2,976 more would maintain earnings participation accounts only,
no sterile reserves; only 656 banks would hold non-earning reserves. Of those, 424 are now members; 232 are large non-members.
Remember that 48 thrifts would be covered, but they would be able
to meet their requirement either with vault cash or by holding an
earnings participation account. So only 656 institutions would actually hold non-earning reserves.
I mentioned that in addition to universality, uniformity and the
earnings participation accounts under our proposal, we have also
proposed to introduce explicit charges for Federal Reserve services-assuming that we enact a solution to membership. Obviously,
we can't put in explicit charges under the present system, because
that would merely accelerate the loss of membership; we can do
this only if we have solved the membership problem. Page 21
shows, again based on 1977, that we expected to be able to generate
$410 million of income to the Federal Reserve by charging for
services at that time.
Finally, on the last chart, Mr. Chairman, we do have the costs to
Treasury broken down. I apologize that those two columns aren't
headed. Please write S. 85 over the first column, and MOD-85 over
the second, and then I can show you the costs.
Pre-tax earnings we talked about earlier, and I explained the
combined effect, on the one hand, of reducing reserve requirements
and, on the other hand, of charging for services. Banks would have
greater income because they would not have to maintain sterile
reserves; they would have less income because of paying for our
services. The net effect under S. 85 is an increase of ~133 million.
But those earnings would be subject to taxes. The Treasury agrees
with us that the recovery-from corporate taxes and taxes on
dividend payments-to the Treasury would be $73 million. The net
cost to the Treasury would therefore be $60 million.
Under our proposal, the net cost to the Treasury-and again this
is the same proposal we made in the House-would be $173 million. We are proposing, additionally, to reimburse the Treasury
over 3 years for the actual loss of revenue. The Federal Reserve
has a surplus built up over 65 years and we would use part of that
surplus to reimburse the Treasury until this transition is complete.
This particular cost estimate is based on a static condition. Actually, what we propose is to phase in the new reserve requirements
over 4 years, and to phase the reduction in reserve requirements
over 2 years; we would put charges for services into effect as soon
as we could, which might take a year, perhaps. We have worked
out a schedule with the Treasury.
Mr. Chairman, I'm not going to take the time to go through the
dynamics in detail. But if you look at the effect of the changes we
are proposing, and compare that with the effect from the loss of
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membership that would take place if we don't make these changes,
then you will find the real cost to the Treasury is ultimately very
small, indeed. If we don't find the solution to this problem, there's
going to be a continued attrition of membership; and if there's
attrition of membership there's a loss of earnings to the Treasury.
So we are lossing income anyway. One of the reasons we feel this
$173 million cost is quite reasonable is that, while there would be a
loss in revenue for 3 years, after that there would actually be a
gain in revenues. So there would be, as we see it, a gain in that we
would stop losing members.
I might point out that while the earnings participation account is
perhaps a novel concept, I was particularly pleased that Senator
Tower, in his proposal, did recognize this as one of the components
that should be considered.
So we have a mixture in the alternative proposals here which we
are hoping to synthesize into a program that would meet with your
approval and your support. We do feel that the matter is extremely
important; the soundness of our financial system in these difficult
times of high inflation and international difficulties is extremely
important to this Nation.
I appreciate your attention. I hope that the degree of detail I
have given has not obscured what is fundamental about this particular matter. Thank you.
The CHAIRMAN. Mr. Chairman, I want to thank you for a really
remarkably fine presentation of an extraordinarily complicated situation and one that isn't the most exciting in the world, but I
think you presented it very, very well and made a very fair and
objective as well as clear presentation.
I understood you to indicate-of course, you prefer the modified
S. 85, but you conceded, as I understand it, that S. 85 as I have
introduced it does improve earnings by the banks. It provides exemptions for about 95 percent of all the banks. All the savings
institutions would be exempt, and the conduct of monetary policy
would be improved. Is that correct?
Mr. MILLER. That's correct. Mr. Chairman, the problem that the
Board has with S. 85 is that although the principles are certainly
right in line with what we think would solve the problem, it may
not be generous enough in reduction of reserves or exemptions.
Therefore, we have suggested modifications to alleviate this.
The CHAIRMAN. I understand that and that's why-I don't want
to be unfair, but it does seem to me that this could be construedand, of course, in my opening statement I indicated I would construe it as a rather brassy proposal to enrich the banks at the
expense of the taxpayer, and when you consider the fact that J. P.
Morgan, in all his majestic arrogance when he deigned to bail poor
old Grover Cleveland and this country out in the 1890's, he never
developed the unmitigated gall to demand interest on reserves.
When the legendary indomitable Biddle clashed with Andrew
Jackson and the Government was attacked for having Biddled
diddled and undone, Biddle didn't have the effrontery to call for
interest on reserves.
Andy Mellon, Tom Lamont, George Whitney, the fabled Gianini,
have never even suggested or whispered that they should be so
richly rewarded.
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Why didn't they? Because they knew they enjoyed a privileged
position in this economy, and here was one rip-off which even they
would have known was too outrageous to call for.
How these great financiers would have admired this magnificent
example of sheer unadulterated brass. I can just see their ghosts
now crowding into this hearing room to sing hosannas of praise.
Don't you feel some reluctance in proposing interest on reserves
for the first time at this time under these circumstances in view of
the fact that we have an austere budget in view of the fact that the
banks are doing so well, in view of the fact that the banks are not
subject and they alone are not subject to the price guidelines and
the profit ratio?
Mr. MILLER. Mr. Chairman, I have no reluctance at all. Not
being one of those famous financiers, I probably have a more
practical approach to solving the problems of the world.
The CHAIRMAN. They were pretty practical fellows.
Mr. MILLER. If you assume we accepted S. 85, then we would
have reserve requirements only on deposits over $40 million. I
can't see anybody rolling over in his grave if we say, by the way, if
you put some more money with us on which we will allow you to
participate in our portfolio.
The CHAIRMAN. You see, the difference is the interest on reserves
and what I'm afraid of-you're dead right that the costs now are
relatively modest and very limited considering the size of our
budget. But once we start the new program of paying interest on
reserves for the first time in the long history of this country, it
seems to me we're going to move rather quickly to paying interest
at the market rate, moving under the present circumstances of
paying 11 or 12 percent interest on these reserves at a colossal cost
to the Treasury, and as I say if there's one thing we don't need now
it's a new spending program, particularly one that isn't targeted at
the neediest in our society.
Mr. MILLER. Mr. Chairman, you see, again, I have to be, practical. I don't know what good it is to be doctrinaire about that issue.
I have more faith that Congress is not going to be an easy target
and give away unnecessary funds, but it seems to me that if we
continue-The CHAIRMAN. It's been an easy target in the past, as you well
know.
Mr. MILLER. This new Congress and this new attitude of austerity is one that I'm sure will be with us for a while, and I support
that. But it seems to me the alternative is for banks to leave the
System and maintain no reserves, with a loss of revenue to the
Treasury. It seems to me that if we want to hold out for a principle
and lose all that revenue, it doesn't prove much.
The CHAIRMAN. On the contrary. You see, Mr. Chairman, my
proposal, S. 85, would not ignore that problem. It would meet the
problem of losing membership. It would meet the problem of permitting you to maintain an effective monetary policy, but it would
do so at lower cost and without breaching that principle.
Mr. MILLER. Yes, and we agree that if you take MOD-85 without
the earnings participation account one could say that we have
stabilized the present coverage of deposits. Undoubtedly, although
there would be some lack of predictability, the Federl:ll Reserve
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could operate. Our view is that if we accept your S. 85, modified as
to exemptions and reserve levels, that we gain something additional for monetary policy by imposing this earnings participation
account: we get coverage of 94 percent of deposits instead of around
70 percent. So we're looking at it a little differently. I guess I have
more faith. I don't believe the Congress, which has been certainly
tough on this issue, would make the decision to solve the problem
now and somehow later create a bias in favor of further erosion in
the Treasury revenue structure.
The CHAIRMAN. Now let me get into the universal reserve requirements which again is a new principle now, and Senator Tower
is exactly right in proposing an option-the committee certainly
ought to have an option and he may prevail. I think that's something that the committee ought to consider very, very seriously
because it would be something new to mandate reserve requirements.
On the other hand, isn't it true that every other central bank in
major industrialized free countries has the authority to set mandatory universal reserve requirements? Do you know of any country
where the central bank does not have the authority to do so?
Mr. MILLER. All major countries have a central bank that encompasses all banks and-The CHAIRMAN. Do you see the need for universal reserve requirements extending to both bank and nonbank depository institutions in all types of deposits?
Mr. MILLER. If we were designing an ideal system, it seems to me
that fair competition would require equal treatment of the same
kinds of deposits.
We have had the proper public policy of creating incentives for
thrift institutions to grow up, to develop, and to expand as a means
of funding specialized needs, particularly housing. The problem is
that, at this particular time, to impose reserve requirements upon
their savings and time deposits, I think would be an undue shift of
policy and a burden. While ideally, the same treatment should
apply, it seems to me that the main thing now is to establish the
principle that if the thrifts are going to move into transactions
types of accounts, similar to banks, they should be expected to be
treated like banks.
There are two ways to go if you level the field to create fair
competition. One is to say that it's not desirable or fair to put a
reserve requirement on time and savings deposits of thrift institutions; another way to go would be to remove reserve requirements
from time and savings deposits at banks. The trouble with that is
that the latter costs revenue and, as you were pointing out, we
have to look carefully at the cost of our proposals. So, Mr. Chairman, if we go toward the ideal, we find ourselves constrained by
some factor I think we are constrained by the issue of fairness in
putting reserve requirements on savings deposits of thrifts. We are
constrained by the costs of removing reserve requirements on time
and savings deposits at banks.
The CHAIRMAN. Are reserve requirements needed on small denomination time deposits?
Mr. MILLER. Probably we could do without it. There's a technical
problem. If we didn't have reserve requirements on small denomi
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nation time deposits, and if we ever remove regulation Q, then I'm
sure banks would divide every large time deposit into small ones.
We have to be careful to develop a structure that will last and not
show problems later on.
The CHAIRMAN. How about reserve requirements in nontransactional savings deposits?
Mr. MILLER. If we could afford it, I think we could operate
without them. I would think if we did operate without such reserves there might at least be standby authority in case of monetary policy needs in some future emergency. But I would think
that's a feasible approach.
The CHAIRMAN. I understand that many bankers and economists
argue that reserve requirements are not needed for the conduct of
monetary policy. Has the Fed got a study on that or if it knows of
studies, it would be very welcome to this committee because I think
some would argue we don't need reserve requirements, and if I
could be convinced of that, of course, I would be happy to forgo it.
For a long time this was computed with safety and soundness. Now
with deposit insurance and the kind of examinations that are done
and so forth, and with the legislation we have passed, I think the
reserve requirements for that purpose are no longer front and
center. It's monetary policy which is the requirement and therefore
I think we ought to have the best thinking we can get on the
justification on that basis.
Mr. MILLER. Certainly. We would be pleased to submit some
additional data. I'm convinced we should have reserves.
I might say that any major country that I know of that has tried
to operate without reserves has put them back on again as soon as
there were difficulties, indicating the value they attach to them.
My first point, without going into the details-and I will submit
material-is that I do think they are desirable and necessary and
appropriate. But second, I would point out that if we _eliminated
reserve requirements the impact on the Treasury would be enormous in terms of lost revenue. So we have to be concerned about
that constraint right now, in trying to address the issue today.
The CHAIRMAN. My time is up. I will be back. Senator Garn.
Senator GARN. Thank you, Mr. Chairman.
Chairman Miller, you have indicated that a key objective of the
legislation should be the ability to control and enhance the predictability of monetary aggregates and so on, and that this is directly
related to the proportion of deposits which are subject to reserve
requirements. Senator Proxmire's bill, S. 85, exempts many small
financial institutions from the reserve requirements, and also the
first $40 million of deposits of larger institutions, and combined
with the imposition of reserve requirements on large institutions
that are not now members of the Federal Reserve System, the net
effect, as you have indicated in your charts, is only a 2-percent
increase in coverage.
So my question is simply, how are we improving the influencing
of monetary policy or the handling of monetary policy with S. 85?
Mr. MILLER. Senator Garn, we would improve it in the sense that
if we don't do something we are going to find, by 1985, only 60
percent of deposits covered; it could be worse. So we start off with
the proposition that arresting the decline is the first objective.
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However, we feel, as we have indicated, that arresting the decline is not the ideal solution. If we could actually expand coverage
by this earnings participation account, we would gain enormously
in our ability to operate in this area.
Senator GARN. But S. 85 as far as monetary policy is concerned
is simply a holding action?
Mr. MILLER. It's a stabilizing influence rather than-Senator GARN. It's not really an improvement, so you feel modified 85 going to 94 percent could give you more control?
Mr. MILLER. Yes, sir.
Senator GARN. How about the Tower bill, the possibilities of
increasing the percentage coverage through voluntary methods?
Mr. MILLER. If we had a system where voluntary membership
was handled by reserves that bore interest, then the burden of
membership would be eliminated. One could, at that point, say that
the probabilities of increasing Federal Reserve membership would
be good because there are advantages to joining the Federal Reserve System.
The difficulty I see with that is the cost. Despite the fact that
this is a critical issue, I'm not convinced that we can afford to pay
the price of going that far at this time in terms of cost to the
Treasury.
Senator GARN. During the hearings that we held last August on
this very subject, the former FDIC Chairman stated that a number
of studies of money control in this country have concluded that
increased membership and legal reserve requirements are not important to the effectiveness of monetary policy. He went on to state
that what the Fed needs to conduct monetary policy more effectively is timely and accurate information about monetary aggegates. He stated there simply wasn't enough accurate information,
it didp.'t come quickly enough, it was usually behind the power
curve, and that this had far more influence on your ability to
conduct monetary policy than the number of member banks or the
amount of reserves that were covered.
Would you comment on his testimony from last August?
Mr. MILLER. We certainly need better data, but to the extent that
deposits are outside the System you have what I call a sloppy
fulcrum. There's a leverage in the generation of the monetary
aggregates through the process of deposits and redeposits. If you
have a lever, but you don't know where the fulcrum is placedbecause deposits move around among different categories and different institutions-lou never know what monetary pressure to
apply since you don t know how much lift you're going to get on
the other end. On the other hand, if you have a sure fulcrum, then
you greatly improve your capacity to accomplish a desired result in
applying monetary action.
I'm convinced that we do need reserves to carry out monetary
policy in today's world and I'm also doubtful that we could afford
the loss of revenues from dismantling them. Therefore I'm convinced that we need more certainty, more coverage. We need the
data, but that is after the fact; we also need coverage of deposits so
we know before we take our action the probability of it working
through the system in a certain way. Data is always historic; it
tells you what happened last week. It helps to have that, but it
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doesn't help in terms predicting what will happen if you do something over the next 2 months.
Senator GARN. I think you would have to agree in the past the
information hasn't shown what was going on last week or a month
before. It's been very much behind and the information gathering
is extremely important to you in accomplishing what you would
like to with monetary policy.
Mr. MILLER. No question of that, and I certainy hope that a
provision here for gathering information will be part of any bill.
Senator GARN. Well, I get back to the point then. Both the
Proxmire bill and the Tower bill have provisions for information
gathering and again we get back to the difference of mandatory
versus voluntary. If information gathering is critical to monetary
policy, wouldn't it be more equitable to maintain voluntary Fed
membership as contemplated under the Tower approach in order to
solve the membership problem rather than a new approach of
mandating membership?
Mr. MILLER. I hope we don't get hung up on the concept of
mandatory versus voluntary. The fact that we have a precedent for
a voluntary system in the United States-it was instituted when
conditions were different-doesn't mean that we shouldn't now
shift to a system like what everybody else in the world has; that is
a system where the central bank serves the Nation and is not a
club. We shouldn't become too convinced we should have a club
approach. We are the only one with it, and it's beginning to show
its age, so perhaps it's time we go from a private club to a universal system where we do involve everybody.
But apart from that, I will repeat, that if membership were
attractive enough so that in effect it became universal through a
voluntary signing up rather than through mandating, I would have
no objection. The only difficulty I have with that is the cost. It
would be expensive to make membership so attractive. If we could
do so without the concurrent loss of revenue to the Treasury, I
would be very satisfied with a system that made membership as
attractive as nonmembership.
Senator GARN. One of my major concerns if you mandate without the requirement for membership, aren't you just simply going
to have some of the banks say they might as well be a member of
the Federal Reserve, and aren't we increasing a threat to the dual
banking system?
Mr. MILLER. I don't think so, Senator Garn. We have now 1,100
State member banks out of 5,600 members. These are very large
banks, and medium banks and small banks. Those 1,100 banks
have decided to maintain State charters, yet become members of
the Federal Reserve. I don't see how, if State banks were required
to maintain reserves, that would cause them to want to shift their
charters or to change their supervision. And, of course, having
mandated reserves does not require rutting up capital and buying
stock in the Federal Reserve; there s a saving there. Experience
would indicate there has to be a better reason to shift membership
than just the fact of being required to maintain the same reserve
base as others. My expectation is that we would not see shifts.
Senator GARN. Well, the fear is certainly there. I've heard it
from a lot of bankers in my own State and elsewhere. They do fear
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whether it's real or not in your opinion, that it is a very definite
threat to the dual banking system. Certainly, the State banking
commissioners, may be just protecting some of their own turf, but
nevertheless, that fear is there. If this bill is going to have an
opportunity to pass that fear has got to be alleviated because it's
real. Whether the Fed thinks it is or not, it certainly is there
among those who are facing these mandatory reserves.
Mr. MILLER. Certainly we want to alleviate that fear. We are
open to any suggestions as to how we can better_assure this constituency. Our purpose is not to expand the Federal Reserve activities in terms of membership. We are trying to solve the problem in
terms of equity and monetary policy issues only. If there's any way
we can reassure State supervisors that we are not trying to poach
on their territory, we would be happy to do it.
Senator GARN. Senator Proxmire seems to be arguing that
income which member banks forgo by holding sterile reserves is
the Treasury's money; somehow it is theirs to keep forever. I share
a somewhat different view. If the banks had that money to invest it
would be helpful to the whole economy and that this is not the
Treasury's money when we talk about sterile reserves. I don't know
who gave them the authority to collect it. How do you feel about
sterile reserves? Is that something that belongs to the Treasury by
some divine right?
Mr. MILLER. It belongs to the Treasury from 1913, if we believe
in the membership concept. If we are willing to look at changing
our system, then we certainly can change the ground rules. There's
nothing wrong, as I mentioned, with a system, that allows interestbearing reserves for all institutions-which levels the field and
doesn't cost banks earnings. That's a very ideal situation. It does
mean that you change the rules that have been in effect for 65
years under which we have "taxed" banks for their franchise as a
part of the whole structure.
Senator GARN. My time is up.
The CHAIRMAN. Senator Morgan.
Senator MORGAN. Mr. Chairman, I only have a couple questions
because I have not had an opportunity to read the Chairman's
presentation. I would say that Senator Garn has raised the main
question in my mind and in the minds of the financial institutions
in North Carolina, and that is the question of what effect mandatory membership would have on the dual system. I would be interested in any analysis that the Board could make with regard to
this because I'm going to have to be convinced that it will not
erode away the dual system of banking before I could find my way
clear to vote for any kind of mandatory requirements.
I have just a couple questions. The chairman asked you about a
study that was being made with regard to need for reserve deposits. Did I understand that the Board has made such a study?
Mr. MILLER. I think we have already submitted to staff of the
House Committee , and we certainly could submit to you, a memorandum that summarizes the need for reserve requirements. There
have been other publications on this, Senator Morgan, but we will
file this memo with the committee and send you a copy if you
would like. It runs through the reasons why reserve requirements
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are considered by the Federal Reserve as an important part of
their policy.
Senator MORGAN. You say that's a summary of the need for it.
Was there a more in-depth study that might have given some of
the pros and cons of reserves?
Mr. MILLER. There's a whole series of them. I don't think there's
been a recent study in the sense that you indicate. There's merely
a body of literature that's been built up over a period of time that's
summarized in our memo. Perhaps we could get some of the
backup.
Senator MORGAN. It might be helpful if we could get the backup
on which this summary is based. I'm sure arriving at it there must
have been some pros and cons.
The CHAIRMAN. Before the Senator goes ahead, would the Senator yield on that? I think that's an excellent suggestion. I think it
would be helpful because the Federal Reserve has a superlative
staff. If you could also make available to us studies in the field-in
other words, studies on both sides of this issue so that the Committee would have available to us the pros and cons.
Mr. MILLER. Why don't we give you a brief on the pros and cons?
The CHAIRMAN. And with a bibliography, if possible, of the leading articles on both sides.
Mr. MILLER. I would be delighted.
[The following information was received for the record:]
THE NEED FOR RESERVES
(1) Under our "fractional reserve system," the ratio of reserve requirements
determines the expansion of deposits that can be supported by each additional
dollar of reserves. For example, if reserves of 20 percent were uniformly and
universally required, deposits could expand only until they were five times as large
as reserves; that is, $10 million of reserves would support $50 million of deposits.
Deposit expansion can continue to the point where the amount of reserves that all
banks have is sufficient to satisfy legal reserve requirements. The reserve requirement ratio is thus the link between Federal Reserve policy actions altering the cost
and availability of bank reserves and banks asset and deposit. It can be thought of
as the fulcrum on which the lever of monetary policy operates. The surer that
fulcrum, the more predictable the policy effect.
(2) "Slippages" in precision of monetary control can occur because deposits shift
among smaller and larger member banks, and among classes of deposits, with
varying reserve requirements. Precision is also diminished in direct relation to the
percentage of deposits held at institutions which have no reserve requirements.
Given the present 28 percent of deposits not covered by Federal reserve requirements, our estimate is that, for any given growth in bank reserves over a two-month
period, M-1 can vary in a range of plus or minus 3¼ percentage points from its
expected annual rate of growth. This range of unpredictability results solely because
of shifts in deposits between banks subject to Federal reserve requirements and
banks not so covered. The precision of monetary control improves commensurately
with a decrease in the percent of uncovered deposits.
(3) It has been argued that reserve requirements are not needed for monetary
control because banks will in any event hold some funds-either as, vault cash or
with Reserve Banks for clearing and other purposes-and the ratios of these funds
to deposits would provide the needed fulcrum for monetary control. However, ratios
determined by individual banks, as opposed to fixed reserve requirements, result in
a highly unstable and unpredictable average reserve requirement ratio. Shifts in
deposits among banks with differing ratios would cause unpredictable "leakages" as
at present. Moreover, the ratio at any given bank is likely to change in response to
changing conditions, locally and nationally, or in response to changes in internal
bank management. The resulting instability in the average reserve ratio for the
banking system as a whole would seriously weaken the linkage between Federal
Reserve policy actions and their effect on deposits.
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It has also been argued that, since monetary policy presently emphasizes the
interest rate on Federal funds, rather than reserves, as its day-to-day operating
guide, the need for reserve requirements is diminished. This argument neglects two
important points.
First, elimination of reserve requirements would effectively lock monetary policy
into the use of interest rates as its operating guide and thus reduce the flexibility of
the Federal Reserve to respond to changing economic and financial conditions.
Second, this argument ignores the fact that the Federal Reserve influences the
Federal funds rate by varying the available supply of reserves relative to bank
demands for reserves; without any binding reserve requirements, our projection of
banks needs for clearing balances and vault cash-that is, of their demands for
reserves-would be extremely uncertain.
(4) As a final point, the Federal Reserve has relied successfully upon changes in
reserve requirement ratios as a policy tool in the past, both to affect domestic bank
credit and to influence the structure of bank liabilities. Reserve ratio changes were
used most recently, in the program announced November 1, 1978, to protect the
international value of the dollar. While open market operations are now the chief
control on the growth of the monetary aggregates, conditions could develop in the
future-for instance, a less active market for U.S. Government securities in a period
of reduced Federal budgetary deficits-when the flexibility to alter reserve requirement ratios could become an indispensable monetary policy option. That option is
now restricted because of its impact on the burden borne by member banks.
BIBLIOGRAPHY ON RESERVE REQUIREMENTS AND MONEY STOCK CoNTROL
Benston, George J., "An Analysis and Evaluation of Alternative Reserve Requirement Plans", "Journal of Finance," XXIV (December, 1969), 849-870.
- - - , "Federal Reserve Membership: Consequences, Costs, Benefits and Alternatives", Study, Trustees of the Banking Research Fund, Association of Reserve City
Bankers, September, 1978.
Burger, Albert E., "The Money Supply Process," Belmont, California: Wadsworth
Publishing Company, 1971.
Cacy, J. A., "Reserve Requirements and Monetary Control," "Review of the Federal
Reserve Bank of Kansas City," May, 1976, 3-13.
Friedman, Milton, "A Program for Monetary Stability," New York: Fordham University Press, 1960.
Kaminow, Ira, "Required Reserve Ratios, Policy Instruments, and Money Stock
Control", "Journal of Monetary Economics," 3 (October, 1977), 389-408.
Kopecky, Kenneth J., "The Relationship between Reserve Ratios and the Monetary
Aggregates under Reserves and Federal Funds Rate Operating Targets", "Staff
Economic Studies," Board of Governors of the Federal Reserve System, December,
1978.
- - - , "Nonmember Banks and Empirical Measures of the Variability of Reserves
and Money: A Theoretical Appraisal", "Journal of Finance," XXXIII (March,
1978), 311-318.
- - - , Richard D. Porter, and Darrel W. Parke, "The Effect of Interbank Deposit
Flows on Monetary Control," Memorandum to Mr. Axilrod, Board of Governors of
the Federal Reserve System, November, 1977.
- - - , and Richard T. Froyen, "Reserve Requirements, Nonmember Banks, and
Money Stock Control with a Variable Deposit Rate," unpublished paper, Division
of Research and Statistics, Board of Governors of the Federal Reserve System,
March, 1979.
Poole, William, "A Proposal for Reforming Bank Reserve Requirements in the
United States," "Journal of Money, Credit and Banking," VII (May, 1976), 137147.
- - - , and Charles Lieberman, "Improving Monetary Control", "Brookings Papers
on Economic Activitx," 2 (1972), 293-342.
Starleaf, Dennis R., 'Nonmember Banks and Monetary Control", "Journal of Finance," XX'X (September, 1975), 955-975.
THE EFFECT OF INTERBANK DEPOSIT FLOWS ON MONETARY CONTROL'
This memo discusses the probable effects of (unexpected) deposit flows between
member and nonmember banks on the Federal Reserve's ability to control the
narrow money stock. The analysis is based on the deposit-multiplier model of the
'We wish to thank Daniel Laufenberg, David Lindsey, and David Pierce for their comments
and Monica Friar for her assistance in preparing nonmember bank reserve data.
'
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banking system and assumes that the Federal Reserve has a total reserves operating target. This model, which is the typical analytical structure used in studying the
dual banking system, provides a theoretical analysis of the way in which nonmember banks are a source of error for monetary control purposes. With respect to
the estimated size of the nonmember-monetary control effect, accurate direct information on the magnitude of interbank deposit flows is not presently available. A
general impression of the most likely size of such interbank flows can, however, be
obtained from an analysis, based on probability theory, of the public's check-writing
and check-depositing behavior in the presence of a dual banking system.
Given a 'best guess' for the size of the interbank deposit flow, the depositmultiplier model then determines the implied present-day deviation in the money
stock from its targeted path. The analysis can also be used to predict the extent to
which money stock misses would be affected by the attrition of member banks from
the Federal Reserve System. Both the deposit-multiplier's solution for the money
stock and the most likely size of the interbank deposit flow depend on the ratio of
deposits at member banks to total deposits. This ratio declines as member banks
leave the Federal Reserve System. Hence, the analysis indicates how continuing
member bank attrition can be predicted to influence the Federal Reserve's ability to
control the money stock.
It should be noted that the analysis is not directed towards problems associated
with the measurement of nonmember deposits. Such problems arise in connection
with the determination of what the money stock actually is. Rather, this memo
deals with problems relating to the prediction of the money stock for a given level
of the total reserves operating target. Even if the nonmember measurement problem were satisfactorily resolved, the money stock prediction problem arising from
the dual banking system would remain.
NONMEMBER BANKS AND MONETARY CONTROL
The nonmember bank source of monetary control error arises because of the
existence of significant differences in the reserve requirements of member and
nonmember banks. These differences in reserve requirements are due not so much
to different required reserve ratios but rather to the types of reserve assets which
nonmember banks can use to satisfy their reserve obligations as compared to
member banks. The principal nonmember reserve assets are correspondent balances
held at member banks and interest-bearing government securities. A model of the
money supply process which incorporates the salient features of member and nonmember banks and provides analytical solutions for the narrow money stock (M,) is
presented in Appendix I.
Before showing precisely how the structure of nonmember reserve assets leads to
pronounced differential reserve requirements, a brief example is necessary to illustrate the role played by reserve requirements in the presence of (unexpected)
interbank deposit flows. Consider two member banks with hypothetical required
reserve ratios against demand deposits of 0.1 and 0.2. If the public unexpectedly
transfers $1 of deposits from the high reserve ratio bank to the low reserve ratio
bank, the first bank loses $1 of reserves and experiences 80 cents of reserve pressure, while the second bank gains $1 of reserves and has 90 cents of excess reserves.
Thus, for the banking system as a whole, 10 cents of excess reserves are created. If
both banks exhibit similar portfolio behavior and if the money stock had been
following its targeted path, the 10 cents of excess reserves will lead to an (unexpected) increase in the money stock above its targeted path as the banking system
creates additional loans and deposits on the basis of positive excess reserves. Obviously, the closer are the interbank reserve requirement ratios, the smaller is the
induced increase in the money stock arising from the unexpected interbank deposit
flow. In the event that the two reserve ratios are identical, one bank's reserve
pressure (and induced deposit contraction) matches the second bank's excess reserves (and induced deposit expansion) so that on net the money stock remains on
its targeted path. Thus, identical reserve requirement ratios (theoretically) afford
complete protection against unexpected interbank deposit flows. As a result, the
Federal Reserve experiences no impairment whatsoever in its ability to control the
money stock.
Under a total reserves operating target, the relevant reserve ratio for monetary
control purposes is that which ultimately connects a bank's deposit liabilities to the
level of total bank reserves which the Federal Reserve predetermines in the short
run. Member banks' required reserve ratios, of course, define the connection between their deposit liabilities and total reserves. For nonmember banks, however,
two steps are involved in linking their deposit liabilities to total reserves. The first
step is the nonmember required reserve ratio. The second step depends on the
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relative amounts of nonmember reserves held in the form of correspondent balances
and government securities. With respect to correspondent balances, the connection
between nonmembers' deposit liabilities and total reserves is determined essentially
by multiplying the nonmember required reserve ratio (which given total nonmember required reserves that are redeposited as correspondent balances at
member banks) times the member required reserve ratio (which yields total member
required reserves held against nonmember correspondent balances). For example, if
member and nonmember required reserve ratios are identical and equal, say, .2, and
if all nonmember reserves were held as correspondent balances, then $1 of demand
deposits in a nonmember bank would be supported by only 4 cents (.2 x .2) of total
reserves, an amount significantly smaller than the 20 cents of support given to $1
deposited in a member bank.
Nonmember holdings of government securities as reserve assets create an even
more disparate set of interbank reserve requirements since such nonmember reserve assets are- not tied at all to either member banks or the Federal Reserve.
Hence, to the extent that nonmember banks hold government securities as reserve
assets, nonmember deposit liabilities bear a zero connection to total reserves. Thus,
what at first appears to be identical interbank reserve requirements (.2 required
reserve ratios) turns out to be a widely divergent set of reserve requirements for
monetary control purposes (.2 for members, .04 for nonmember correspondent balances, and 0 for nonmember government securities). Given these differential interbank reserve requirements, an unexpected public reallocation of deposits between
member and nonmember banks can lead to a significant surge or contraction of the
money stock in relation to its targeted path.
UNEXPECTED INTERBANK DEPOSIT FLOWS
Deposit flows between member and nonmember banks can be considered over
weekly, monthly, or quarterly time intervals. To provide a focal point for analyzing
short-run monetary control, this memo examines only monthly deposit flows. Some
monthly deposit flows occur regularly; some do not. For example, part of the
interbank flow of deposits may be due to seasonal factors, such as households with
nonmember accounts paying N.Y. department stores with member accounts at
Christmas. These deposit flows alter the total volume of nonmember reserves and,
as a result, could affect the total money stock. But as long as the Federal Reserve
can predict the magnitude of the interbank deposit flow, it can always change total
bank reserves to offset any undesired effect of interbank flows on the money stock.
In short, that component of interbank deposit flows which is predictable does not (at
least theoretically) lead to monetary control difficulties for the Federal Reserve.
The second component of interbank deposit flows is by definition random or
unpredictable. This component arises for a wide variety of factors, all of which
escape notice because they are either quite irregular or too small in magnitude. If
sufficient data on nonmember banks were available, the data could be processed by
different methods (e.g., regression, time series analysis, etc.) in order to determine
as closely as possible the regular (predictable) patterns inherent in interbank deposit flows. The remaining part of the interbank deposit flows would be treated as
random or unpredictable. This procedure would ultimately lead to an estimate of
the standard deviation of the unexpected component of the interbank deposit flow.
This estimate in turn could be used to establish a range for the unavoidable erratic
behavior in the money stock induced by random interbank deposit flows.
Unfortunately, complete data on nonmember banks 1 is available for only four
statement weeks every year. These data are dispersed over time to permit an
accurate determination of the standard deviation of the random component of
interbank flows which would be relevant for monetary policy aimed at monthly
control over the money stock. Given the lack of nonmember bank data, indirect
estimates of the size of such flows can nonetheless be acquired from an elementary
probability model which describes the essential characteristics of random interbank
deposit flows. Since the final estimate of the standard deviation of the deposit flows
depends on the probability distributions used, this approach captures only purely
random behavior.• In short, the various economic factors which could explain the
predictable component of the interbank deposit flows are by definition excluded
1 Nonmember bank data, made available with only a short-time lag, also permits the Federal
Reserve to acquire information more quickly about the size of its actual prediction error on
interbank deposit flows. Gjven such inforn_iation, the Federal ~serve would be able to respond
faster to observed random mterbank deposit flows, thereby keepmg the money stock closer to its
targeted path.
• ~vailable 11/!'!(I'eg~te _info_rmation is used to pr<_>vide estJmates of some paramenters of the
vanous probab1hty d1Stnbutions. Where aggregate mformation is not available, the most conserVC'tive parameter estimate is used.
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from the probability analysis. Of course, the structure of the economy in which
these deposit flows occur is unquestionably more complicated than that specified in
a relatively elementary probability model. This caveat simply means that the probability model provides only a skeletal outline of the sources of uncertainty in
random interbank deposit flows. Hence, the reported estimates should be regarded
as tentative.
Appendix II presents a detailed description of the various assumptions employed
in constructing the estimate of the standard deviation of random interbank deposit
flows. Briefly, these assumptions deal with the probability of the following events
taking place:
(1) the deposit of a given check in a member or nonmember bank; and
(2) the writing of a check by a particular individual;
(3) the income level of the individual writing a given check.
It is also assumed that the minimum check size is $10, and the maximum is $1
million. On the basis of most recent data, the estimated average check size is $1,049.
Finally, of the total number of checks written per month, the proportion k (the ratio
of deposits at member banks to total deposits) is assumed to be written on member
bank accounts and (l-k) on nonmember accounts.
On the basis of the above assumption, the standard deviation of the random
deposit flow over one month, say, o-. can be directly related to k, the ratio of
deposits at member banks to total deposits. Table 1 presents the value of one
standard deviation of the deposit flow for alternative values of k. Notice that the
standard deviation is largest ($640 million) when k= ½ and is also symmetric
around k= ½. At the December 31, 1976 call date, k=.75. Corresponding to this
value of k, the one standard deviation value for the random interbank deposit flow
is $555 million, and the two standard deviations value is $1,110. Under the present
member-nonmember composition of the banking system, therefore, it can be inferred from these estimates that in eight months out of the year the size of the
random deposit flow between member and nonmember banks would be no larger
than $555 million; and in about 11 ½ months such flows would be no large_r than
$1,110 millions.
TABLE
!.-Standard deviation of random deposit fl,ows between member and
nonmember banks
(k) Proportion of deposits at member banks:
.10 .................................................................................................................... .
.20 .................................................................................................................... .
.30 .................................................................................................................... .
.40 .................................................................................................................... .
.50 .................................................................................................................... .
.60 .................................................................................................................... .
.70 .................................................................................................................... .
.80 .................................................................................................................... .
.90 .................................................................................................................... .
Millions
384.822
513.096
587.826
628.412
641.371
628.412
587.826
513.096
384.822
THE ESTIMATED MONTHLY ERROR IN M, DUE TO RANDOM INTERBANK DEPOSIT FWWS
TABLE 2-PERCENTAGE ERRORS IN MONTHLY M, GROWTH RATES ASSOCIATED WITH STANDARD ERRORS
OF THE RANDOM INTERBANK DEPOSIT FLOWS
(Standard deviation of
deposit flows) (in
millions)
k (Proportion of deposits at member banks):
.1 ..................................................................................................... .
.2 ..................................................................................................... .
.3 ..................................................................................................... .
.4 ..................................................................................................... .
.5 ..................................................................................................... .
.6 ..................................................................................................... .
.7 ..................................................................................................... .
.8 ..................................................................................................... .
.9 ..................................................................................................... .
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384.822
513.096
587.826
628.412
641.371
628.412
587.826
513.096
384.822
Percentage error
6.30
5.56
4.75
4.05
3.44
2.88
2.34
1.83
1.23
26
The (annualized) monthly percentage deviations of the money stock (M,) from a
targeted level of $330 billion are estimated from the model of the banking system
used in conjunction with the estimated standard deviation of the random interbank
deposit flow. The M, percentage deviations corresponding to one standard deviation
of the random deposit flow are presented in Table 2 for alternative values of k. At
the present-day value of K (.75), the corresponding monthy M, growth rate error is
approximately 2.1 percent. Previous research suggests that under a total reserves
operating target, the monthly M, growth rate error, attributed to all potential
sources of random behavior, is approximately 3 7.1 percent. For comparable presentday values of k, therefore, the estimated M, growth rate error (2.1 percent) due
solely to random interbank flows lies within the above total M, growth rate error
range. This internal consistency of the two M, growth rate errors raises the credibility of the simulation procedures used in this memo.
The monetary control implications of continuing member bank attrition follow
immediately from inspection of Table 2. If k were to fall from its present-day value
of .75 to, say 0.4, the range of the monthly percentage money growth rate error for
two-thirds of the months would almost double from 2.1 percent to 4.05 percent. In
fact, for 95 percent of the months, the percentage error would lie between plus or
minus 7.93 percent. Two factors explain this predicted increase in the money growth
rate error. First, as k falls from 0.75 to 0.4, the standard deviation of the random
deposit flow rises by about $75 million. Second, and more importantly, the average
required reserve ratios for the aggregate banking system falls as k declines to 0.4.
Essentially, this decrease in the average reserve ratio occurs because deposit dollars
at nonmember banks bear a smaller connection to the Fed's total reserves than do
deposit dollars at member banks. Since a decline in k makes nonmembers relatively
more important in the aggregate than members, the average effective reserve ratio
becomes increasingly dominated by the reserve ratios and reserve asset structure of
nonmember banks. To illustrate this point more clearly, notice that for k=.9 and
k=.l the standard error of the deposit flow is the same; but the percentage error is
1.2 percent at k=.9 and 6.30 percent at k=.l.
In conclusion, this memo has presented models of the aggregate banking system
and the public's check-writing and check-depositing behavior to determine the monetary control effects of random deposit flows between member and nonmember
banks. The reported money growth rate errors tentatively suggest that under a total
reserves operating target such random interbank flows presently lead to a significant impairment in the Federal Reserve's ability to achieve its desired short-run
monetary growth objectives. The results also strongly indicate that the deterioration
in monetary control would become progressively more serious as k continues to fall
via member bank attrition from the Federal Reserve System.•
'This estimate is derived from the Staff Report, "Analysis of the Impact of Lagged Reserve
Accounting," October 6, 1977.
• It should be noted that this result does not hold for all values of k less than .1. If Table 2
were extended to show values of k Jess than .1, the percentage error would continue to increase
and would _reach a m~in_mm value of 6.38 percent at k = .079. Thereafter, the percentage error
would declme. In the hm1t as k approaches zero, the percentage error also approaches zero. This
result occurs because at small values of k the variance of the random interbank deposit flow
falls at an increasing rate, while the denominator of the multiplier solution for M, declines
linearly.
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Tco:
M1·. i\xi lrod
i\PPENDIX I
A Model of Lhe Banking System
The model is an extension of the standard deposit multiplier. model and describes the behavior of four transactors dealing
in five financial instruments,
The transactors are the public (P),
the Federal Reserve (F), member banks (M), and nonmember banks (NM).
The financial instruments i.nclude demand deposits (D), time deposits (T),
currency (C), government securities (G), and reserves (R).
To keep
track of th~ asset-liability status of each financial instrument, a
superscript denotes an asset and a s11bscript a liability.
The model
also assumes that the Federal Reserve ha• a total reserves operating
target.
Lhc variable c 0 M is used to denote a r;,ndpm alloca-
Finally,
tion of the public's demand deposits between member am! nonc1cmbcr
b:tnks.
The equations of the model are as follows:
p
p
(1)
DP
DM + DNM
public's total demand deposits
(2)
Tp
TOP
public's demand for time deposits
(3)
cP
µDP
public I s demand for currency
(4)
DM
(5)
lM
F
p
=
k DP+
k Tp
44-240 0 - 79 - 3
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£
OM
public I s allocation of demand deposits
public's allocation of time deposits
28
T(\:
:Ir. ,\xilr1,d
·?M +
(6)
Tp
(7)
D!·1
(8)
R
(9)
DNf!
p
DNM
(10)
RNM
0 NM
(11)
Rt-ct
(12)
GNM
T
I'
public's totnl time deposits
Nr-1
p
Df-<11
D1·1 + M
composition of members' demand deposits
DMD DM + PMT
Tp
M
composition of nonmembers
+ GNM
D~IM
+
"1
I
dem,md deposits
composition of nonmembers' reserves
M
"o
supply ,md demand for members' reserves
p
T N:-1
<YRN:•1
nonmembers' demand for reserves
nnnmcmhcrs' demand for government
sccuri tics
Equations (1)-(6) describe the behavior of the public.
The time deposit and currency equations, (2) and (3), follow the
standard prescription by making the public's demand for earh asset
proporti0nal to the public's holdings of clcmand de.posits.
With
resp0ct to the alll,cation of the public's demand deposits between
m~mbcr and nonmember banks, we assume proportionality on average
to total demand deposits so that on average k of demand deposits
is allocated to members and 1-k to nonmembers.
The sal'le proportionality
factor, k, is assumC'd to hold for the public's allocation of time
deposits between member and nonmember banks.
Equations (7)-(8) refer to member bnnks and the Federal
Reserve.
i
represents the predeter~incd level of the Federal Reserve's
total reserve operating target.
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The correspondent-type balances
29
T<>:
Mr. Axi lrnd
held hy nonmembers at members are capt11red in (7).
The required
reserve ratios against demand and time deposits are pMD and pMT'
respectively.
The key feature in the model is the link which connects
nonmember banks to the federal Reserve.
As (7) and (8) sh0w, the
link is established essentially because member banks must hold reserves
against a liability, D~M• that also serves as a nonmember reserve
asset.
The behavior of nonmember banks is described by equations
(9)-(12).
Nonmembers' required reserve ratios against demand and
time deposits are XD and
X1 , respectively.
Equation (10) shows that
nonmembers have the option of holding demand deposits at member banks
and °government F:ccuritics as reserve nssets.
The relativC' amounts
of each asset which can satisfy nonmember reserve requirements vary
state by state according ,to the regulations issued by the different
state hanking cor.imissions.
For simplicity, it is assumed that Lhc
aggregate proportions of nonmel'1her reserves in the form of government
securities is
'.l'.
This assumption implies that the proportion of
nonmember reserves held as co,rrespondcnt balances at member banks
is 1-a.
, The model's solution for M1 is
(13)
~
DEN
( l + µ) t DM p ~ID ( l - ( l -
'.l')
AD]
DEN
where DEN
purposes, the follo\o.'ing values for the model's parameters, bas~d on
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30
,1vcr;:1ges nf thr mctsr: rcccnlly avniL1blc data, were used:
i)
l•
.35
I i)
T
2. )I,
iii)
p~!D
. 127
iv)
PMT
.033
v)
).D
.113
vi)
"r
.044
vii)
a = .35
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31
T0:
Mr. Axilrn<l
APPENDIX II
The Stnndnrd Deviation of Random Interbank Deposit Flows
Assumptions
The analysis is based on the following assumptions:
(Al)
Binomial (Independence) Assumption
Let k denote the underlying average ratio of member bank
private demand deposits to total private demand deposits.
It is
~ssumcd that the prob ob ii ity that a given check wi 11 be deposited
in a member ·bank ts equal to k and that if it is not deposited at
a member bank, it is deposited in a nonmember bank with the complementary probability of 1 - k.
It is also assumed that the check
movements nrc indcpcndc11t fr0m one check to lhe next.
Thus, the
number of cliccks deposited at member or nonmember banks follows
binomial distribution with parameter k.
,1
If, for example, 10 checks
are written on some account per month, the expected number of checks
deposited at member banks that are drawn on tl1is account equals
lOk
with standard deviation
.j
lOk(l - k) ,
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32
T0:
~fr,
Axilro<l
Table 3 displays values of this standard deviation for
alternative values ,,f k, the underlying proportion of member demand
deposits to total demand deposits.
TABLE 3
STANDARD DE\'IATlllN OF CHECKS llEl'OSIWD AT rn:MBER BANKS
PER MONTH GI VEN 10 CHECKS PER MONTH
k
Standard Deviation of the Number of Checks De ositecl at Member Banks
I
0
.9
.8
.7
.6
.5
.4
.3
.2
.1
.95
1.26
1.45
1.55
1.58
1.55
1.45
1.26
.95
.0
0
As would be expected, the uncertainty concerning check flows is largest
when nonmembers rival members exactly, thnt is, when k= .5; the variance falls off symmetrically above and below this value.
(A2)
Independence Across Depositors
Suppose the ,;equenc<l of checks wrHten in a given month
on member bank accounts is
arrayed in some order:
the second check, and so forth until the last check,
the number of depositors
'1L
member banks,
the first check,
Let Nm be
Th<' checks may be viewed
as a sequence of independent trials for each of which the probahility
that the check was written by any particular one of the Nm depositors
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33
is 1/:,n.
SimiLnly, it is assumed th;it fur nonmember banks it is
equally likely th,1t each depositor wrote any check in the sequence
of checks written on nonmember accounts in a given month.
(A3)
The size of encl, check written by an individual is a function
of the individual's income.2/
(A4) ·The aggregntc distribution of income in the e~onomy is assumed
to follow a truncated Pareto distribution~/ with minimum income level,
y0
,
and mnximum income level, y 1 ,
TI,e Pareto distribution hns often
been used to represent the distribution of incomes in an economy and
l1as several convenient features for our purposes.
As a conscqt1ence
of this assumption, it follows that the size distribution of checks
in the economv also follows a Pareto distribution.
This result follows
from A3 and A4 using Lhe property of Pareto distributions that transformations of vari1bles of the form (1) (see footnote 5 below) also
have a Pareto distribution.
(AS)
The total number of checks written per month equals 2.975
billion.
Of this number, the proportion k are assumed to be written
on member bank accounts and (1 - k) on nonmember accounts .
.. This total estimate was derived by taking demand deposits
(excluding U.S. government and domestic interbank) at the last
JI More spcclflcally, if y is income, any fonctlon of the form
(1)
T = by 0
~
> 0, b > 0 ,
where T = check size, will work.
!:_/
The truncated Pareto distribution is described on page 20.
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34
available call dole (Oeccmbcr 31, 1976) and applying check volume
estimates
froM
FDIC surveys of 10 milllcm checks per month per l
billion of deposits.]/
For that call date
membPr bank deposits
nonmember bank deposits
total
$223.307 billion
74.212 billion
$297.519 billion
or
10 million
1 billion
297.519 billion
x
yields the figure of 2.975 billion checks per month.
(A6)
The average check size equals total monthly debits against
demand deposits divided by the number of checks per mc,nth,
IL
y
il,__!19,780 million
2 , 9 7 5 mi 11 ion
§/
$1,049
i.e., the average check size is $1,049.
(A7)
It is assumed that the minimum check size in the economy is
$10 and the maximum check is $1 million.
Based on this assumption,
the standard deviation of the Pareto distribution of check size,
9/
say, cry equals $16,613.-
JI
11,e FDIC estimates for 1973 were 10.8 million checks per month
per 1 billion deposits, Inflation should tend to reduce the
number of checks relative to deposits, so this slightly smaller
rate was chosen,
j/
Estimates for July, 1977 from the new national sample of debits.
~/
This calculation is discussed on page 21.
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35
1\1:
Mr. Axilrod
The Standard Deviation of Deposit Flows
Given Al-A7, the standard deviation of the random deposit
10/
flow between member nnJ nonmember banks equals -
a
7.
=J
wheren
the number of checks per month
k
proportion of total demand deposits at member banks
µy
average size of check written
ay
standard deviation of check size distribution.
At the December 31, 1976 call date k= .75, and substituting this
and the other values into the above cxpressi0n yields
a 2 (givenk=.75)
2.975
X
10 9
X
.75
X
.25[1,Q.'..9 2 +2
X
16,61/]
$555 million.
Properties of the Truncated Pareto Distribution
Let y be a random variable that is distributed as truncate4
P,neto with lower limit y 0 and upper limit y 1 . The density function
of y is
10/ The derivation of this result is presented on pages 22-24,
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36
y
f(yJ
1
-C~)
s
0
~ ~ - ~+l
y
The mean of y is
(15)
y
y
P-1 r
;l
E[y]
0
1
<l-1
1
The second moment of y is
(16)
.
and the vc1r1ance,
(17)
2
oy
tJ
2
y, cqll.Jls
f.[y-E(y)]
2
Given values for y 0 and y 1 and E(Y/, equation (15) can be solved to
obtain values for~-
The implied values of~ and o
Table 4 for alternative values of y 1 given y 0
= $10
y
are listed in
and E(y)
= $1,049.
TABLE 4
y 1 (Upper Limit)
~ (Pareto P.1rameter)
O
y
(Standard Devi;ition
of Check Size)
$1
million
$100 million
.M7
.792
$ 16,616
$136,870
$1
. 8316
$397,887
billion
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37
'l'o:
Mr. i\:<l l r,,d
Derivolion of a
z
Let n be the totol number of checks written per month.
Let n
m
and n
n
denote the number of checks written on member ond
nonmember bank accounts.
n
m
nn
Let z
mn
In view of assumption (AS),
kn
( 1 - k) n
be the dollar amount of checks written on member accounts
which are deposited at nonmember banks and znm be the dollar amount
of checks writ ten on nonmember accounts which are d<'posite<l _at member
banks.
The random variable, z
z = z
- z
mn
rnn
represents the "net" outflow of deposits from mcrahcr to nonmember
bonks.
The variablP, z, t.:ikcs on huth positive 0ncl negative v.:ilucs
depending on the r,'lati.ve magnitudes of zmn and znm"
n
(18)
z
mn
Now
m
2,
i=l
x. Yi
l
i th check goes to member bank
i th check goes to nonmember bank
size of i th check
Since xi and yi arc assumed to be independent and identically distributed for all i--sec (Al) and (A2)--the variance of z mn
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38
11
a
2
1
i=l
nm
11
where
m
l.:
m
var(x. Yi)
l
µ
E(xy
X
IL
y
i2
x denotes an ~rbitrary x 1
y denotes an orbitrary Yi
and
Furthennore,
(19)
E[xy - l'x 1.c,,,1 2
=
E[xy - '\Y +µxy-f'x µYJ 2
E(xy-lL y / + E(µ y-µ ,,. )'l. + 2 E(xy-µY)(µxy-µxp.y)
X
X
xy
)(
2 2
2 2
E(y P x + µx cry
c/y
+ ,,2)02 +
y
X
,,2
X
a2
y
Thus,
(20)
a
2
z
a2
n [/
myx
mn
a2
2 a2J
+ / xy + ax
y
.
Since x satisfies
2
ax= k(l-k)
(20) is rcploced hy
(21)
a
2
z
mn
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= n [ / k(l-k)
m y
+ (1-k/
cr2y
+ k(l-k)cr 2 ] .
y
39
To:
Mr. Axilrod
By a symmetric argument
(22)
Hence,
(23)
02 = 02
z
z
+ o2
znm
mn
= kn[µ 2 k(l - k) + (1 - k) 2 o 2 + k(l - k)o 2 )
y
y
y
+ (1. - k)n[iy k(l - k) + k 2o 2 + k(l - k)a2)
y
y
.. n /
y
k(l - k)
+ 2n k(l - k)a2
y
= nk(l - k) ~! + 20!]
which corresponds to the expression for oz on page 21.
Senator MORGAN. One other question, Mr. Miller. You mentioned
if thrifts are going to move into transactional types accounts then
perhaps we should move toward putting them on the same basis as
banks. Would you elaborate on that a little?
Mr. MILLER. Certainly under a system where thrifts have been
specialized institutions-have had certain advantages and certain
limitations-it made sense not to regard them as banks and not to
treat them as banks under banking laws. But as the volatility and
cyclicality of housing, and the difficulty of earnings diversification,
has continued to put pressure on thrifts from time to time, and as
thrift institutions have sought to diversify their activities, they
have increasingly begun activities-including offering the equivalent of demand or checking deposits-which were previously limited to banks. As that happened, they became to some extent nearbanks, more and more like banks. And as they become more and
more like banks, to that extent, it would seem logical, if we are
going to have an equitable system of competition, that they should
be treated the same as banks with respect to those activities.
Of course, my view is that it doesn't make sense in today's
world-no matter what sense it may have made in 1913-to subject
some banks to a tax, not subject others, and treat other kinds of
institutions-that are beginning to behave like banks-entirely different. It just isn't a good competitive environment. You should
have everybody in the race handicapped the same way and let the
best innovator, best provider of service, win. What we are doing
now is creating niches of preferential advantage, and this erodes
the capacity of the central bank to respond in these complex times
to the needs of the Nation.
Senator MORGAN. Would it be your thought that thrifts that
move into transactional accounts maybe should be subject to the
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Federal Reserve Bank of St. Louis
40
same regulations as banks only in those areas-say only in the
transactional accounts or in all of them?
Mr. MILLER. It seems to me just in those areas. As to reserve
requirements, certainly we're proposing them only as to transactional accounts. We are not suggesting reserves on the savings
accounts of thrifts which were designed for another function.
Senator MORGAN. Well, isn't that somewhat like giving them
their cake and letting them eat it too?
Mr. MILLER. It may be, but there is already a buildup of hundreds of billions of dollars of savings· in that category. To try to
suddenly change the ground rules at this late date is, I think,
harsher than necessary. As I say, the ideal system would have all
the depository institutions totally on the same basis.
But we did create policies in this country for specialized institutions that serve specialized functions. Now they're becoming more
generalized and, as they become more generalized, I think we have
to begin to at least set common ground rules where common interests exist. I'm not prepared to say that we should try to disturb
other functions that have served the country well for a long time.
Certainly we have provided better housing for more people in this
country than any other country.
Senator MORGAN. Well, I agree with you and that's really what
concerns me. It concerns me that the more they move into the
banking area, the less likely Congress is to extend these special
benefits that we have enjoyed-and I say we because I'm a great
promoter of thrift institutions.
Mr. MILLER. You perhaps take the view that they should be
limited to continuing specialized institutions. But they, themselves,
are being aggressive in pointing out that, with the cyclicality we
have seen in housing and the need for nondepository sources of
funds for housing in today's world, they want additional powers
and additional authority; and they themselves are gaining it. NOW
accounts, as you know, came about not because someone decided to
grant more power to thrifts, but because thrifts invented a new
form of payments mechanism. They established their right in court
and they created checking accounts under State laws, not Federal
laws. And the first thing you know they are behaving like banks.
Senator MORGAN. Well, that's really what concerns me because,
as you stated earlier, I think we have had the finest system of
financing homes of any country in the world and it's probably
meant more to home ownership in this country and I just have
among my constituents a strong feeling that as they move more
and more toward banks they should be treated more and more like
banks, and as that becomes true they are going to be thrown into
competition for money to the extent they are going to need to move
from home financing to consumer financing and you're going to
destroy the finest system of home financing.
Mr. MILLER. I hope we don't do that.
Senator MORGAN. I hope we don't either, and that's why I have
opposed NOW accounts since the first time I sat on this committee.
I think, Mr. Chairman, that that's probably all I have. I have
nothing else.
The CHAIRMAN. Senator Tower.
Senator TOWER. Thank you, Mr. Chairman.
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Federal Reserve Bank of St. Louis
41
You know a lot of the questions that have been raised and the
problems that have been underlined in this discussion follow along
with some of the questions raised by Senator Morgan, and I think
they are indicative of the difficulty and frustration that confront us
in trying to consider this problem out of context with overall,
comprehensive financial institutions reform, and we are going to
have to discipline ourselves I think at some point, Mr. Chairman,
to consider comprehensive financial institutions reform which, of
course, we did about 3 years ago. We passed a bill which died in
the House. Times have changed since then. The basis on which we
considered that legislation and acted on it has changed, but I think
we should proceed at some point in this Congress I hope to consider
comprehensive financial institutions reform because it's very difficult to take this and lift it out of context and deal with it piecemeal as we have dealt with other matters piecemeal, and I would
hope at some point we would do that.
The question Senator Morgan raises, raises a lot of "ifs." If we
move through subsequent legislation to transaction accounts for
thrift institutions, if we enact, for example, NOW account legislation that would authorize them all over the country, then we have
to come back and change the rules again. And so I hope that we
will address ourselves to this and I don't want to get on the
soapbox about it, but I can remember that our old friend Tom
McIntyre put in a lot of effort on this and was very-although I
disagreed with him on a lot of the details, I think his approach was
right and I hope that we discipline ourselves to do that at some
point in this Congress.
Of course, this committee actually did approve the payment of
interest on reserve requirements in the NOW account legislation
that we passed here-when was it-a year or so ago, and so it's not
something new. If you're going to talk about the precedent; of
paying interest on reserve requirements that's not precedented. It
has been advocated in the past and in fact the voluntary system
has been with us for some time and what we are doing is setting a
new precedent; if we adopt this legislation it requires mandatory
membership. So that's a departure from the precedent or established way of doing business.
You know I have some sympathy with comprehensive financial
institution reform legislation and I wouldn't even want to consider
this problem were it not for the urgency of it, and I agree with
Chairman Miller that it is a matter of some urgency that we must
deal with, and he's been very persuasive and I think he's bent over
backwards to try to accommodate all legitimate concerns and I
want to commend him for that, but the Fed has actually supported
the payment of interest on reserves as a means of solving this
problem or alleviating the problem in the past.
So I'd like to ask the question: Does the Fed not now believe that
this approach would solve or alleviate the problem?
Mr. MILLER. Senator Tower, you recall that when we made our
proposal last year we felt, despite the recommendations that were
made by the study commissions over the years, that it was not time
nor was there consensus for moving toward mandatory reserve
requirements. We proposed, at that time, that we merely reduce
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the burden through a combination of lower reserve requirements
and paying interest on reserves, within budgetary limitations.
However, it is a consistent Federal Reserve position to favor
universal reserve requirements. We support this effort to make a
landmark decision on the more universal, uniform system, with all
of its benefits and equity. And, in the process of supporting that,
we definitely support the concept of an earnings participation account that would bear interest, in order both to give greater coverage and not to impact bank earnings.
It's a question of how to propose paying interest so that it's
acceptable and affordable. As l say, we are not doctrinaire, but we
do feel that it's important that the problem be solved. This is a
critical time and requires landmark legislation. I'm aware that this
committee voted 13 to 2 to approve the concept of paying interest
on reserves, so we didn't feel any embarrassment in proposing it
last year and we don't this year.
Senator TOWER. Mr. Chairman, a great deal has been said about
the impact on the Treasury of paying interest on reserve requirements. I think too often we, in legislation in this body, think only
in terms of what the impact on the Treasury is or what the cost to
the Government will be and not enough in terms of what the
economic impact will be beyond that, and I wonder what consideration has been given in making this proposal not just to the impact
on the Treasury, for example, of paying interest on reserve requirements, but what the ultimate economic impact may be. We can't
just consider the welfare of the Treasury here. We have to consider
the welfare of the entire economy of the United States. We have to
consider, for example, that this country is facing up to a capital
formation crisis which I think everybody is in agreement on.
Mr. MILLER. I certainly concur. As I indicated, the proposals we
have made-even the modification we have proposed-has a shortterm impact on the cost to the Treasury, because we perceived this
to be a constraint that had been already recognized by Congress in
past efforts. For both NOW account legislation and payment of
interest on reserve parameters have been laid out. The proposal we
have made, Senator Tower, would, by 1984, actually result in a
slight gain to the Treasury. So we are not really making a proposal
that would impact the Treasury. I suppose one could make the
argument-if the issue is as urgent as I feel it is-that we could go
further toward reducing this form of taxation. If we do a good job
on monetary policy in the next 5 years, and reduce inflation in this
country, that will be more valuable to this country than any
amounts of money we are talking about here.
Senator TOWER. I agree. Thank you very much, Mr. Chairman.
The CHAIRMAN. Senator Stewart.
Senator STEWART. I just have a few questions. Is the basic thrust
of your proposal here and the proposals that have been made by
other members of this committee to attract a greater number of
members in the Reserve System and thereby affect monetary
policy? Is that the basic thrust of it?
Mr. MILLER. Not quite, Senator Stewart. We are looking to
assure that the reserves maintained with the Federal Reserveeither in nonearning or earning form-are sufficient to give us the
certainty we need in implementing monetary policy. We do not
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seek to expand the membership. We merely seek to stabilize and
expand deposit coverage, which could come from nonmember deposits. We are not seeking more banks for Fed membership. We
have no desire to do that, if the problem can be solved and we can
get the monetary base with which to operate by their being nonmembers.
Senator STEWART. Well, let me rephrase the question then. You
say these reserves-I thought I understood the first few pages of
your policy statement or your statement here this morning-that
this increase in reserves which you would have available to you
would enable you to better direct monetary policy. Are you not
saying that or are you saying that?
Mr. MILLER. Senator, would you please flip to page 17, which
might be helpful. We are, in all the proposals, seeking a reduction
of reserve requirements; so we are not seeking higher amounts of
reserves. In fact, we are proposing a $12.2 billion reduction in
reserves. While we would actually reduce the amount, they would
apply universally, for a surer fulcrum.
Senator STEWART. It would apply to more banks?
Mr. MILLER. There are 232 banks who now do not hold nonearning reserves with the Federal Reserve who would be required to do
so; many thousands who now do wouldn't be required to. But what
we would gain is more monetary control.
Senator STEWART. Over those banks and thereby more control
over what?
Mr. MILLER. There would be no different regulatory base at all,
merely greater monetary policy predictability. In the first place,
there would be greater equity, because all banks would be subject
to the same handicap. From the monetary policy point of view,
there would be several advantages. One is greater predictability of
how much pressure you put on through monetary restraint, because you would know the outcome with greater certainty.
Senator STEWART. Let me followup right there. In line with that,
what do you actually use to influence monetary policy? Have reserves played that important a part or, as your statement indicates
on page 3, has the use of the open market operations of the U.S.
Government securities been your basic weapon as far as that is
concerned?
Mr. MILLER. We generally have conducted monetary policy more
through open market operations. The second point as to improving
monetary policy under this proposal is that we would have more
flexibility to use reserve requirement changes because we wouldn't
have to worry about the effect on membership. If we decided to
increase reserves by 1 percent or lower them by 1 percent, again, it
would be for monetary policy purposes and it wouldn't exacerbate
the membership problem.
Senator STEWART. Are you saying by that last statement there
that if you had more member banks, then you would fall back on
the reserves policy rather than the use of the open market? Is that
why you got into that to begin with?
Mr. MILLER. If we have greater coverage of deposits, we have
greater flexibility than we now have to use reserve requirement
changes in monetary policy.
44-240 0 • 79 - 4
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Senator STEWART. That wasn't the question I asked. The question
I asked was are you saying by having more member banks involved
that you would have that tool available to you and it would be a
better tool to use than the open market policy?
Mr. MILLER. Yes; but I'm trying to say, Senator Stewart, that
we're not trying to change the number of member banks.
Senator STEWART. I understand that.
Mr. MILLER. There wouldn't be more member banks involved;
there would just be more total deposits covered, some of those
nonmembers.
You see, there are four reasons from a monetary policy point of
view that we think the proposal has merit. One is greater certainty
in predicting the results of monetary action because of the higher
percent of deposits covered. The second is because we wouldn't
have to worry-Senator STEWART. Let's get that down in lay language so I can
understand it. You've got more money under your control at that
particular point in time?
Mr. MILLER. No; let me go through it simply. Today a deposit
may be made at a member bank, and some of that money must be
deposited as reserves with the Federal Reserve. The rest of it will
be re-deposited through the banking system. If that deposit is made
at a nonmember bank, there is no requirement for reserves to be
held at the Federal Reserve. If the deposit moves from a member to
a nonmember bank, there is a shift-from a reserve being required
to no reserve. If it moves from a small bank to a large bank,
reserve requirements also change. All of that makes for sloppiness
in relating reserve requirements and the actual growth of the
money supply. As the deposit moves around, it creates for the
Federal Reserve a very unpredictable increase or decrease in reserve requirements and in turn a very unpredictable effect on the
money supply. We cannot measure what's going on when deposits
shift unpredictably. But, under our proposal a deposit going to any
bank would require the same reserves and we would know exactly
the amount of reserves involved.
Senator STEWART. It would give you better capability in setting
monetary policy?
Mr. MILLER. Yes, sir.
Senator STEWART. Now my question would be how would you set
that?
Mr. MILLER. First, we would still be able to operate monetary
policy through the open market.
Senator STEWART. You would use the open market?
Mr. MILLER. We would still do that. But the second point is that
now the Federal Reserve is reluctant to use a change in reserve
requirements as one of its monetary policy tools because this tends
to affect the membership problem. Therefore, a uniform system
will improve our flexibility to use reserve requirements; the water
will go up and down the same for everyone; we won't just raise the
burden for members.
Senator STEWART. Are you telling me, then, why you went to the
open market policy was because in fact if you used the reserves you
would lose membership or that it was not an effective way to have
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some kind of positive effect on monetary policy? What was the
reason? Why did you go to that?
Mr. MILLER. The development of the open market operations has
a long history and they would continue to be a critical element in
monetary policy for injecting reserves or withdrawing them from
the banking system. We would not want to give that up. Now this
may be confused with the question of whether the Federal Open
Market Committee, in order to effect a certain money supply level,
does so by trying to influence interest rates or by addressing the
monetary aggregates. Now that is a different issue from the one I
was talking about of changing reserve requirements. The first issue
involves how you operate the open market desk, the technique you
use, and the interaction of cost and supply. You can say, "We will
control money by making it more expensive or cheaper," or you
can say, "We will control money by working on the amount of it
which will determine whether it's expensive or cheap." Quite often
this is mixed up with my second point, which is that regardless of
how the technique, the ability to conduct monetary policy and to
influence the direction of deposit growth can be improved by reserve requirement flexibility. For example, by reducing reserve
requirements on time deposits you might influence more deposits
to go into time deposits and thereby create a better maturity base,
less short-term money. Reserve requirement flexibility could be
improved if there was a more uniform system.
There are other reasons for this approach which relate to
making sure that all institutions have access to the Federal Reserve window; that is, have the capacity to borrow from the Fed for
adjustment purposes. If more institutions had that capacity they
would be protected better in times of liquidity difficulties, members
and nonmembers. They would have the right to borrow whether
they were members or nonmembers under our proposal, and that
would be a gain.
Senator STEWART. My time has expired, but I have one other
question. There was a page missing here in my part of the explanation of the legislation, page 10. I thought maybe the junior Members of the Senate were not supposed to have an explanation of
that, and then I found out Senator Morgan didn't have it either.
Page 12 is also missing.
Mr. MILLER. We are obviously not doing a good job of putting our
testimony together. We'll get you another copy right away.
Senator STEWART. If it's an explanation of Senator Proxmire's
bills, I certainly want it.
Mr. MILLER. That's very critical; I'm sure Senator Proxmire
would want you to have it, too.
The CHAIRMAN. Yes, even if it comes from the Federal Reserve.
Mr. MILLER. I apologize for that.
The CHAIRMAN. Senator Tsongas.
Senator TsoNGAS. Mr. Chairman, I had some thoughts which
may have already been covered and I don't want to delay this by
repeating.
The CHAIRMAN. Go ahead. I've got some more questions.
Senator TsoNGAS. I just hesitate to go through the same questions that you may already have answered.
The CHAIRMAN. Why don't you say what they are.
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Senator TsoNGAS. One of my concerns was with regard to the
approach and I guess you go into it in your testimony, as to why
don't we simply mandate the approach to membership, given the
fact that nonmember banks in essence have all of the advantages
and none of the disadvantages of member banks? Why not simply
put on a particular floor and anybody can qualify under any circumstances?
Mr. MILLER. I'm not sure I understood that proposal-Senator TsoNGAS. Any bank above a certain deposit level would
have to be a member of the Federal Reserve.
Mr. MILLER. What's been proposed by Senator Proxmire in S. 84
is that any bank with deposits above a certain level would be
subject to reserve requirements, but that bank would not have to
become a member and put up capital-which is an additional requirement-and would not become subject to examination by the
Federal Reserve. So a larger institution could remain a State bank,
still work with the State supervisor, and yet be required to place
reserves with the Fed. Under our modified proposal, 232 nonmember banks, would be required to maintain reserves; under
Senator Proxmire's proposal, 280 nonmember banks would be required to. Ours reduces that number to 232. Page 20 compares the
number of institutions covered. What we have been trying to do, to
get an even handicap and equitable treatment is to require reserves for those who have deposits over $50 million; they would not
be required to become members of the Federal Reserve System.
Senator TsoNGAS. Let me ask you this. I often have the commercial banks in Massachusetts argue with me that their position
relative to the thrifts has deteriorated and they therefore would
like to see a semioligopoly system. Since we are talking about a
kind of restructuring of the system, has that been given some
thought? New England has, of course, with the NOW accounts and
so forth-diminishing distinctions between the various kinds of
institutions. You evolve to the point where they all pretty much
get involved with the same kind of opportunities, the same services, the same capacity to engage in transactions. Of course, Regulation Q would necessarily be part of the situation.
Mr. MILLER. Yes. Senator Proxmire's bill would cover transaction
accounts of thrift institutions. To the extent these institutions act
like traditional thrifts, they won't be covered; to the extent they
get into transaction accounts, they would be covered. We have
included that concept in our suggested modification, so that 48
thrift institutions would be covered by our proposal. None of them
would be required to maintain sterile reserves at the moment;
because they are not big enough, but if they continue to grow so
that they become real competitors of banks, then they would
have-on transaction accounts only-the same reserve requirement
as banks. This would make a fair competitive environment.
Certainly one of the reasons we have favored the coverage of
thrifts is that, if they do grow and become more like banks in
providing checking and NOW accounts, it would make sense that
they have the same handicap.
Senator TsoNGAS. Which banking organizations or groups have
endorsed your proposal? I hesitate to ask.
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Mr. MILLER. We don't know about all of them yet because they
are still formulating their opinions. The American Bar Association
leadership group met recently and endorsed many features of this
bill.
Senator TsoNGAS. The American Banking Association?
Mr. MILLER. American Bankers Association.
Senator TsoNGAS. Sometimes it's indistinguishable.
The CHAIRMAN. You said American Bar Association.
Mr. MILLER. American Banking Association, excuse me. ABA,
the same initials as the Bar Association but I meant American
Bankers Association. They did not endorse extending reserve requirements to nonmembers or to thrifts; they preferred a voluntary
system. The Independent Bankers Association of America will be
meeting next month. Last year, they endorsed a proposal of Senator Proxmire's that was similar to S. 85, but we don't know whether they will change position this year.
Senator TsoNGAS. I would suspect that their concern over the
increasing nonmembership and control of the Fed is less than
yours would be.
Mr. MILLER. My concern? My concern is a very intense one. I
think if we continue to have attrition of membership, we will have
the worst of all possible worlds, because we will have more and
more uncertainty in monetary policy. We have greater and greater
inequity as fewer and fewer banks share the burden of membership.
Senator TsoNGAS. Is that perceived out in the banking community generally?
Mr. MILLER. Yes. I have been reminded that the IBAA endorsed
the Reuss proposal in the House; I don't know if they took a
position on Senator Proxmire's proposal last year. I'm sorry. I was
mixed up on that.
Yes, it's perceived as a serious problem and it's one that's been
building for 4 or 5 years. It's been talked about until recently as
the membership problem, but I don't think the problem is membership. I don't think it makes as much difference to the good of this
Nation whether banks are members of the Federal Reserve as
much as whether the central bank is set up to serve and deal with
and monitor reserves for the whole Nation. That's why this proposal does not require membership; it requires all banks of a certain
size to maintain comparable reserve requirements so that we can
execute monetary policy with greater certainty. We are not seeking
to change the dual banking system or to expand the membership.
We are seeking to solve what we think is a national problem of
great importance, that of assuring a sounder monetary policy, a
more equitable banking system, fairer competition; we are seeking
to do so at a time when thrift institutions are expanding some of
their bank-like functions. Now is the time to lay down the ground
rules so that everybody knows there will be an equal competitive
arrangement and not preferred treatment. Otherwise, we re just
going to face the problem later when it's more intense.
Senator TsoNGAS. Do you see any regional differences in views
on this issue?
Mr. MILLER. Yes. Of course, New England has already been
impacted by the NOW account-and New York is now being im
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pacted-and the burdens of membership have become so intense in
the face of this competition that we have had an enormous loss of
membership. The major banks realize this attrition of membership
does weaken the monetary system and does, in fact, erode the
capacity of many banks to compete equally.
In other parts of the country, with unit banking or other forms
of banking or where S. & L.'s or thrifts haven't developed as much,
there's less of that attitude. In the banking community at large, I
think there's a pervasive recognition of the problem and of the
need to address it either by reducing the burden of membershipto the point where membership no longer is unattractive-or by
leveling the playing field so everybody has the same ground rules
in carrying out the same functions.
Senator TsoNGAS. It's going to be an interesting bill to watch
wend its way through Congress.
Mr. MILLER. It's going to be interesting for me to watch it.
The CHAIRMAN. Mr. Chairman, one way your mere existence of
reserve requirements should be helpful in the conduct of monetary
policy is that the banks know they must meet a given cash requirement; they know they have to have a certain reserve. I assume
that's the reason why the Board argues that a broad deposit base is
needed, but how important is the level of reserve requirements?
Isn't it true that the lower the reserve requirement ratio on transaction accounts, the greater the reserve multiplier and therefore
doesn't that also mean the effect of any reserve shock or mistake
by the Open Market Desk would have relatively less adverse
impact on monetary control if the level of reserve requirement is
higher?
Mr. MILLER. That's correct.
The CHAIRMAN. Therefore, the S. 85 bill before the Federal Reserve modified it has a higher reserve requirement and therefore
would have a monetary policy that was firmer and more precise,
would it not?
Mr. MILLER. I think it would have a lower multiplier effect. We
can manage with a higher multiplier as long as it's a certain one
as well. But your point is well taken that under your proposal
there would be a lower multiplier effect.
The CHAIRMAN. Let me suggest a compromise. According to some
very preliminary data that's been developed by the Banking Committee staff, it's possible to put together a package with the following: (1) Universal reserve requirements on transaction accounts
and large denomination time deposits; (2) No reserve requirements
at all on small time deposits or nontransactional savings; (3) the
cost to the Treasury held down to a reasonable level. For example,
reserves against transaction accounts of 10 to 11 percent against
large time deposits of 67 percent, and a waiver of each of these at
$10 to $15 million, the cost to the Treasury might be $100 million
to $140 million or less. Only 1,500 to 1,700 banks would have
reserves at the Federal Reserve Banks but 84 percent of all transaction accounts would be covered and 76 percent of all bank deposits would be covered.
Now this approach would put banks and thrifts on par. Both
would have no reserve requirements against time and savings de
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posits. The Fed's concerns would be met and the cost to the Treasury could be held down. What do you think of that approach?
Mr. MILLER. Mr. Chairman, I think there's considerable merit to
that approach. Let me see if I understand it correctly, and then
react to some of the advantages you mention. Of course, we feel
that uniform, universal reserves on transactions accounts is, perhaps, the cornerstone of the policy we are looking for. If we could
then find the capacity to eliminate reserve requirements on savings, so that banks would be on the same basis as thrifts, that
would have considerable advantage in terms of equality of competition.
Your suggestion on time deposits, I think, would probably work
fine in today's world. I would worry if we ever had a change in
regulation Q which you and I have talked about; if we ever eliminated interest rate ceilings we would have to be careful not to have
a structure that could be gotten around by breaking all large time
deposits into small ones. That could be done just by issuing them in
series. So we want to watch the technicalities, but I think your
proposal-assuming we could handle technicalities like that-is
one of considerable interest.
The CHAIRMAN. Now many banks have argued that reserve requirements are a tax. In fact, some of the members of this committee did exactly that this morning. They are an inefficient way to
collect taxes and inequitable and unfair, and you argue that it's
been an unfair tax because the tax falls only on member banks.
They don't apply to nonmember banks or thrift institutions. The
Congress has a responsibility of levying and collecting taxes. I
agree with you that we have inequitable situations; we always have
inequitable situations with respect to income taxes bank pay. We
don't hear much about that.
I have a report from the Congressional Research Service that
indicates the effective tax rate in the largest banks in 1977 were
not only very low, but they were nonexistent with respect to many
of the banks; yet all the bills we are considering would reduce the
reserve requirements for these banks by an enormous amount.
Can you tell me how many banks paid no U.S. taxes at all in
1977?
Mr. MILLER. I don't have that information.
The CHAIRMAN. Well, the figures I have are for 2,407 and the
effective tax rate according to a tax note here, which is issued by a
responsible nonprofit group, the effective tax rate was less than 3
per~ent _on banks compared to a 48-percent rate in 1977. You have
a s1tuat10n here where Bankers Trust, Chase Manhattan, Chemical, Citi~orp, Continental, Manufacturers Trust, and Marine Midland paid no taxes at all according to this. At least they had
deferred cr~dit in excess of current tax liability. The other banksBankAmenca, the biggest bank in the world, paid 12 percent in
taxes compared to 48-percent nominal rate; First Chicago paid 6.9;
J. P. Morgan paid 11 percent; First Bank System paid 7.2 percent,
and so forth.
In view of th_is situation, isn't it proper for us to consider that a
payment of no interest on reserves does constitute a tax indeed and
I would concede that, but in view of the fact that the banks are
able to not to pay the taxes that they pay in other industries,
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doesn't that somewhat ease the argument that this is a tax?
Doesn't it make it more equitable and fairer to impose a tax under
these circumstances?
Mr. MILLER. Senator Proxmire, I would certainly have to know
the basis for figuring those tax payments by banks. I know that
many banks, in recent years, have financed capital for industry
and that the tax credit has probably made it possible for more
capital investment to be made than otherwise would have; that tax
credit could be one of the factors reducing bank taxes.
The CHAIRMAN. Yes; I want to make it very clear that I don't
oppose increased profits for the banks. I think that's healthy and
wholesome and we should have them and that we should be encouraging the banks to be more profitable, not less. What I'm
concerned about is when they do make money their tax liability is
too small and, furthermore, we don't really have the firm data
before us. I wonder if the Federal Reserve could make a study of
this.
Let me put it this way. I'd like to ask the Federal Reserve for a
detailed study on how major tax credits and tax breaks on all of
these things have changed over time.
Would it be possible to make that kind of study and make it
available to the committee within a month?
Mr. MILLER. We'll see if we can get it; yes. I'm not sure what our
resources are. I want to point out, Senator, in talking about our
proposal for earnings participation accounts, you must recall that
we are merely putting that in as a supplement to required reserves.
We're not suggesting that there be, if you will, additional tax
relief. If you continue to look on noninterest bearing reserves as a
tax, we'll be able to negotiate. We are suggesting that once you do
get a uniform level of noninterest bearing reserves set, then in
addition to that, we require some additional deposits which, when
held by the Fed, would earn income as in the case of the other
bank investments.
[The following paper was received for the record:]
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CHANGES IN MAJOR SOURCES OF TAX
SAVINGS FOR BANKING ORGANIZATIONS: 1969-1977
A Study by the Staff of the Division
of Research and Statistics of the Board of Governors
of the Federal Reserve System*
April 1979
*
Gerald A. Hanweck and Rick Kilcollin were principally responsible
for the preparation of this study. Helpful comments and contributions were made by John Mingo and Benjamin Wolkowitz. Able research
assistance was provided by Oscar Barnhardt.
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I.
Summary
The staff has assembled data on secular changes in major sources
of tax savings and their effect on the final Federal tax liability of banking
organizations.
The latest available data from the Internal Revenue Service (IRS)
indicate that the average effective Federal tax rate (taxe~ as a percentage of
worldwide income before taxes) ·.for these organizations has declined from 21.5
per cent in 1969 to 11.3 per cent in 1975.
The largest source of Federal tax
savings for these organizations.-has been tax-exempt income from municipal -securities.
This source- of taX savings has been .. increasing -in importance,. accounting
for,.a reduction in the effective tax rate of 21.5 percentage points in. 1969 and
.29.2 percentage points by 1975.
A second major and increasingly important
source of Federal tax savings has been the foreign tax credit-accounting for
a reduction in the effective tax rate of 1.7 percentage points in 1969 and
7.4 percentage points by 1975.
A
panel of 20 large banking organizations has experienced a similar
--pattern of sources of Federal tax savings, although these large banking
organizations have relied more heavily on foreign tax credits than have
their
smaller counterparts ):l The data assembled from these organizations' annual
reports to stockholders and Securities and Exchange Commission (SEC) lOK reports
indicate that tax-exempt income from municipal securities and foreign tax
l/
~ndividually some large 9rganizations may appear to be paying no current
Federal income tax; but, because of the difference between book income as reported
to stockho~?ers and the SEC ~nd taxable ~ncome under IRS rules, a negative
current Federal-tax according to book inCome does not mean that the corporation did -not have· a Fede_:r:_al tax liability. A _maj~r sou~c;.e of the reduc;tl:,on
in ':_urr~nt Federal ~ncome-tax_, ~aS reporte,f·to s~aieho~_deis, 1=~ the fo~efgn
t_ax credit. Howev~r, .~l.nce a, foreign __ ta~ cre.dit is limited to the current
Federal ·t.ik -li3:~ility be;f;re credits t:i~eS ·the' ratio of "foreign -s0{1rce ~taXable
income to WOrldwide taxable income, a foreign tax credit cannot eliminate the
actual current Federal tax liability.
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credits accounted for 16.5 percentage point and 15.8 percentage point reductions from the nominal 48 per cent maximum tax rate in 1977 (the latest
year for which complete lOK reports are available).
Since. many banks opera.te worldwide, an alte.rnative means of
viewing effective tax rates is to consider the rate of tax paid worldwide.
For all banking organizations, the data indicate that the worldwide tax rate
on worldwide income (Federal tax plus the foreign tax credit as a percentage
of worldwide income) has shown a moderate downward trend from 23. 2 per cent
in 1969 to 18. 7 per- cent in 1975 •. The worldwide tax rate on worldwide
-income for 20 large banking organizations has increased somewhat from 18,8
per cent in 1974 to 20.8 per cent in 1977.
This trend for the larger
institutions is similar to the trend in their United States.tax rate on world-
wide income which increased from 2.0 per cent in 1974 to 4,9 per cent in 1977,
Because income from municipal securities is tax exempt, another
_way of viewing effective tax rates is to consider tax rates only on taxable
income (all income less that which is exempt from Federal taxes}.
Since.
1969, the worldwide tax rate on w01;ldwide taxable income for all banking
organizations has increased moderately from 41,9 per cent to 47,7 per cent.
The large banking organizations have experienced relatively stable effective
tax rates on worldwide taxable income--30.2 per cent in 1974 and 31.7
per cent in 1977.
An alternative method of adjusting effective tax rates for tax•
exempt income is to estimate taxes and income on a tax-equivalent basis,.!/
Empl~iin& this
method,
the
wi;1dJide
tax
r~t~
on woridwide tax-equivalent
income for all banking organizations has increased moderately from 45
per cent in 1969 to 47.9 per cent in 1975.
1./
For the 20 large banking
This method is described in the Appendix.
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Federal Reserve Bank of St. Louis
54
organizations this tax rate has remained nearly constant at 38.5 per
cent from 1974 to 1977.
Thus, although their U.s·. tax rates on worldwide--
income appear low (2 per cent to 4 per cent), the worldwide tax burden on a
tax-equivalent basis for large banking organizations is substantial.
Congress has provided banks and other financial institutions "1th
liberal tax treatment for additions to loan-loss reserves.
Even though this
is being gradually phased out, so that by 1968 banks will be able to deduct
only "experience" loan losses, the effect on tax savings from additions to
loan-loss reserves in excess of actual losses has been significant.
The
available data indicate that between 1969. and 1975 this source of Federal
tax savings has accounted for a reduction from the nominal rate of 48 per cent
of between 2.6 and 5.0 IJercentage points.
A final important source of tax savings for large bankirig organizations is derived from leasing activities.
Because bank leasing requires con-
siderable start-up costs, only the larger banking organizations have engaged in
this activity and ha,ve b-een ab.le _to take _advantage of the tax s~vings .. -aspects of
leasing-principally from the investment tax credit and accelerated depreciation.
For the panel of 20 large•organizatioris~ccelerated depreciation
and the investment -tax cred:i._t_·_have accounted for a reduction of 6 to 9 percentage
point in Federal taxes fro~ the nominal 48 per cent rate.
II.
Major Sources of Tax Savings and Effective Federal Tax Rates·;of Banking
Organizations
Tables 1 through 4 present the basic findings of this report_
Table 1 shows_ the recent history of FEideral tax rates paid by banking organizations•
The. major. Sources. of banks-tax-sa\1i'ngs--3re---additi0.rtal-ly
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Federal Reserve Bank of St. Louis
55
expressed as percentage point reductions from a maximum statutory Federal tax
rate of 48 per cent.
of base incom.o.
Table 2 parallels Table L except· for a redefinition
,~
In this table, municipal bond income is excluded from base
income whereas in Table 1 this item is included.
Thus, Table 2 givee sources
of tax savings and Federal tax rates as a percentage of taxable income,
1 and 2 depict., the data presented in Tables 1 and 2, respectively,
Charts
Table 3
gives a breakdown of Tables 1 and 2 by size of bank for 1974 (the most recent
available data by size class).
Finally, Table 4 presents data for the·20
large banking organizations.
Considerable care should be taken in interpreting these tables,Y
First, Tables 1 through 3 are derived from Internal Revenue Service Corporate
Tax Return data, and are not directly comparable to Table 4.
Table 4 is
derived from financial statements and data supplied to the SEC in its J.OK
reports.
The measurement of income can differ between tax and financial state-
ments for a variety of reasons-such as differing bases :!;or subsidiary consolidation or differing treatments of capital consumption allowances,
Also
"income tax" has a fundamentally d;ifferent meaning ;in the two type$ of
statements.
For tax statements, income tax is current tax liability.
Current
tax liability is not the same as taxes paid on current income; for example,
current taxable income may reflect losses carried forward from previous years,
while the tax on some current income (or tax credit for a current deficit}
may be carried over to future years.
Financial statement income tax refers
to current provisions for Federal taxes,
1/
Current tax provisions, lj_kewise
See the Appendix for the methodology used in the construction of these
tables as well as for the data used in Tables 1 and 2,
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Federal Reserve Bank of St. Louis
56
do not necessarily correspond to taxes paid on current income.
Some taxes
currently provided for may actually be deferred indefinitely into the future,
Also, some tax credits, particularly for foreign taxes--whi.ch act to reduce
current tax provisions-may never be realized and thus do not actually reduce
taxes on current income •.!/
Second, few corporations realize--as is implicitly assumed tn the
construction of the tabless-a 48 per cent tax savings on tax-exempt income,
either because a 48 per cent rate does not apply or because of the minimum
tax on tax preference items.
This accounts largely for the anomaly·in- the
tables and charts of some actual tax rates in excess of the maximum statutory
rate net of major tax savings.items.±-/
Third, the tables are somewhat distorted because a corporation c·an
not have a negative Federal income tax even though it may have a negative
taxable income.
This distortion is present in Tables 1 th~ough 3 in the form
of a tax liability which is affected.by loss carry forwards,
It is present
in Table 3 as well in the more subtle form of an aggregation bias wh.icb makes
it appear that small banks pay higher tax rates than large banks,l/ The
distortion exists in Table 4 in the form·of an implicit assumption that all
1/ See the text under the discussion of the foreign tax credit for an elaboration of this point.
2/ See the Appendix for further discussion of this point.
A small bank such as a newly formed bank is more likely than a large bank
to have a net deficit in any given year, This deflcjt will reduce total income
for the size class of bank, but the resulting tax loss carryover will not reduce
current taxes below zero for the deficit bank. Thus an aggregate of_ small
banks will appear to pay higher tax rates than an aggregate of large banks,
even if this is not the case.
"ii
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Federal Reserve Bank of St. Louis
57
foreign taxes paid will be credited against
u.s,
Federal incQ1J1e tax--even to
the extent of a reduction of U.S. taxes below zero.!/
This report includes data for the most recent years available.
For
all banks the naost recent data are contained in the IRS Sf~tistics of Income:
Corporation Income Tax, preliminary for 1975,
For large banking organizations
the most recent data are from the 1977 published annual reports to stockholders, l0K reports submitted to the SEC and summaries in the Tax Analysts
and .Advocates;·publication Tax Notes.
Bank Report of Condition and lncome
Statements submitted to bank regulatory agencies are not used in tnis report
because they do not provide data on the various sources of tax savin~s.
·sources of Bank Tax Savings
1.
Municipal Bond Income
Federal law provides for the tax exemption of interest income from
State and local government obligations as well as for certain other oblj_gations-....
such as pollution control bonds and small industrial development bonds. -These
tax-exempt securities are collectively termed
11
municipal bonds'·~"
Table 1 indicates that municipal bond interest income has been the major
tax saving item_ for banking organizations· in the recent past. :Municipal bond
interest income acted to reduce the maximum statutory rate for all banks by 21.5
percentage points in 1969 and by 29.2 percentage points in 1975.
Furthermore,
this item has been most important for middle-sized organizations with total
assets between $50 million and $500 million.
1/ See the-text under the discussion of the foreign tax credit for an elaboration of this point. This particular bias arises in Table 4--but not in
Tables 1 through 3-because it is constructed from financial statement data
which report the provision for foreign taxes although actual foreign tax
credits claimed will be somewhat less than this provision. Tables 1 through
3 rely on tax statement data which report only the actual foreign tax
credits claimed.
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58
The importance of municipal bond interest income as a source of tax
savings has increased over time because municipal bond income has risen as
a per cent of net bank income.
Since muni.c.ipal bonds have declined as a per
cent of bank financial. assets, and the interest yield on municipal bonds has
declined relative to other yields (see Chart 3), the increasing importance
of municipal bond income in bank net income can be seen to be primarily the
result of an increase in bank expenses relative to receipts over this per.iod 1
rather than to an increased use by banks of municipal bonds as a tax savings
device ..
2.
Loan-Loss Reserves
Banks are allowed a deferment of taxes on transfers from undivided
profits to loan-loss reserves.
Under the Tax Reform Act of 1969, these
transfers are primarily limited by a ceiling on the level of such reserves
as a per cent of "eligibleU~_loans.
Th.e law sets this ceiling at 1.8 per cent
of eligible loans through 1975, 1,2 per cent from 1976-81, ana u,o per cent
.from 1982-87.
After 1987, a bank's I:RS deduction for additions to loan-loss
reserves will be limited to actual loan-losses based on moving average of
the previous five years' loan-loss experience,
The addition to loan-loss reserves in excess of current net loan
losses is held to be a tax preference item by the IRS;_and thus it is included
as a source of tax savings in the tables and charts presented in this report.
Since the IRS samples this tax preference item only occasion~lly 1 the data
are sketchy and no trend in the magnitude of this source of tax savings is
apparent.
It appears that loan-loss reserves are a relatively small but
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Federal Reserve Bank of St. Louis
59
significant source of tax savings in the three years for which data are
available (Table 1).
This item will become less significant over time and
will disappear after 1987.
J.
Foreign Tax Credit
Taxes paid to foreign governments on earnings of foreign operations
of U.S. banking organizations can be credited against an organization's
Federal income taxes.
However, there are specific limitations.
According
to current tax law, a foreign tax credit is limited to the current Federal
tax-liability before credits, times the ratio of foreign source taxable
income-to worldwide taxable income.
Essentially, this limitation prevents
a foreign tax credit from eliminating a current Federal tax liability.
Additionally, tax law permits excess foreign tax credits to be carried over
for use in future tax periods.
Since the late 1960's, foreign operations of the major U.S. banks
have grown considerablv.
For example, for all U.S, banking organizations
the foreign tax credit has increased from $77 .8 million in 19-69 to $547 .9
million in 1975-an average annual increase of 38 per cent (',!'able A-11,
lly
comparison, before tax income of U.S. banking organizations increased 3t an
average annual rate of 7.9 per cent over the same period.
The effect of this rapid growth in foreign operations on Federal
taxes has been concentrated in the laxgest banking organizations.
For 20
large banking organizations, foreign taxes accounted for a 15.8 percentage
point reduction from the nominal 48 per cent tax rate in 1977 (Table 4).
Even
though the growth of foreign operations of large banks has been considerable,
the foreign tax credits arising from foreign sources of income have been a
44-240 0 - -. "
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Federal Reserve Bank of St. Louis
60
relatively constant source of Federal tax savings for these banks since 1974
(Table 4).
Even though past growth in foreign operations of U.S. banking organizations has been very rapid, there are presently signs that this growth is
beginning to level off.
This will have the effect of lilldting the importance
of foreign tax credits on effective Federal income taxes to the extent that
taxable income grows more rapidly than foreign tax credits.
For tax purposes
the•:data in Table 4 suggest that some of these organizations have accumulated
substantial foreign tax credit carryovers,
Since these cannot be retained-
indefinitely, taxable income must grow in order for these carryovers to be
useful in future years.
In fact, if foreign tax rates exceed the 1979 U.S.
maximum rate of 46 per cent on corporate earnings, taxable income may need to
grow more rapidly than foreign taxes in order for these foreign _tax credits to
be fully utilized.
Consequently, the effect of foreign taxes in reducing
Federal taxes is anticipated to be of lesser importance in future tax periods.
4.
Investment Tax Credit 2 Accelerated Depreciation and Leasing
The equipment leasing activity of banks has become increasingly
important since the Comptroller ·of the Currency approved leasing for National
banks in 1963.
Since then, many States have permitted their banks to engage
in leasing and (since the 1970 amendments in the Bank Holding ~ompany Act) the
Board of Governors has approved personal property leasing as a pennissible bankrelated activity for bank holding companies-(BHC 1 s). 'Typlcaily a busiriess
firm enters into a leasing arrangem'ent- be:Catise-::-it .O-canno·t take adVantage of
either the tax savings from the investment tax credit or accelerated depreciation
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Federal Reserve Bank of St. Louis
61
on newly purchased equipment, -or =because· it ;ls-.:..unable to- -finance· a ·purchase·
of the· equipment at a lower overall cost;--A-banking organization purchases
the. new equipment, or retains~-20 ·per ··cent equity
as
in ·a· leveraged lease;
qualifies for the tax savings-, -andcmay pass on.part ·-of .these tax-savings~
to the business firms by leasing the equipmeni:.at ·a·lower··cost than--if thefirmi had .borrowed to purchase the equipment_-directly;
The tax benefit gained from leasing by a ba_,;king organization (the
less.or) can be substantial:·
Accelerated depreciation and the investment tax
credi; ~re the most important sources of th:_- tax savings )J In addit';);,,, the
_, ·:.;.·~--·>~.'-,_- -· _··:· -•-.--.-. __ -__._-_~--·---. _·_. ,:,·.-:;;-·;:...":<,:...>,;:·,,....":.:i.",:•-; ,.
lessor need not retain a 100 per cent equity ·:1.n -the leased property -t,i""obtain · ·
q:!~.;.,;:._•.;.,_.
. .
•.
-
·:_.:.
· all the·- tax saving benefits.
-!
_,:.t
_.._ •:•.. ~:•:•;~. ,;_·--~ ·:;·-.,
In a leveraged lease the lessor must have at
...
. ·;,::-:o::_;;;·
least 20 per cent of the equity in the property while sharl.ng the r;maining
80 per cent with some other firm--usually an insurance company--~n order to
retain all the tax benefits associated with accelerated depreciation and the
investment tax credit.
Consequently, leveraged leasing allows a banking
. ,- ··-·-
- _. ••---.--
,
. ·---~-
organization to derive a-substantial tax benefit not only on its share of the
revenue from the lease but on other income as well.
· For all banking organizations, the tax.,saving effect oJ; accelerated
depreciation and the investment tax credit has been to reduce the nominal
tax rate by about 1 to 2 percentage points during the 1969-75 period,
However, since a leasing operation usually requires substantial resources in
1/ The investment tax credit is presently an effective 10 per cent on equipment
;;ith a useful life of 7 years or more, 6.67 per cent on equipment with a useful
life between 5 years and less than 7 years, 3,33 per cent on equipment with
a usefuL life of between 3 years and less than 5 years, and no credit for
property with a useful life of less than 3 years. Additionally, the maximum
credit is $25,000 plus 50 per cent of the remaining tax liability, Thus, the
investment tax credit encourages longer-term lease financing than would otherwise prevail. Accelerated depreciation is that amount of a depreciation
deduction that is in excess of what would be deducted by using the straightline method of depreciation.
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Federal Reserve Bank of St. Louis
62
start-up costs and volume maintenance, only the largest banking organizations
have entered this activity.
As a result, accelerated depreciation and invest-
ment tax credits account for a substantially greater reduction in the nomi~al
f~,ta:' rate for large banks than for all banking organizations.
During the period
'.)J'.. 1974-77, accelerated· dep:eciation and investment tax credits accounted for a
fti, reduction
}t'
·
in the nominal tax rate of the largest hanks of from 7 percentage
~ ,.·,
-
•a'
·
C, '
.• •
.(;",points in: 1974 to 10 percentage .points in 1977 (Table 4)..
IXI;.
~,~·~:~:F~f Tax Sa:~:~~~--Perspective ~:.;~•~., :· ·.
··
, --·
;i. ~-,, ' <>~cii;.~h of -the ~j-;;r''~~~~:;hich"r~~u~:· :ffective. c~=~-~~~i~'~Ei~t..'x-
;tf~-i-
~~~_rates wer~ -;;;acted
•'''<:'~,.,.
------ --·-·by Con&re;~· tO
~.7-- ... ·----- --
ellcourage sPecific "activities.
The investment
credit ;;:~d accelerated depreciation ;.uowance are meant to stimulate real
capital formation.
The tax-exemption of municipal bond interest income is
·aimed at enabling state and local governments to borrow more cheaply,
The
foreign tax credit seeks to encourage international investments by avoiding
:a·,; the double taxation of foreign income.
While tax inducements are the
~
·=-~~~~;'-'.operandi of these Federal. programs;· it is tmwarranted to assume that banks ar.e
i:~-th8
SOie -~r even
the major =beneficitiries of these tax saving itemS'.: --Insofar
as these tax savings are actually shifted to their intended beneficiaries
the effect is to leave banks' after-tax earnings unchanged.
For example, it must be the case that some of the tax savings of
the investment tax credit or accelerated depreciation allowance claimed by
banks in connection with leasing operations ~re passed on to the lessee in
the form of lower lease payments, or to equipment suppliers in the form of
higher purchase prices.
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Federal Reserve Bank of St. Louis
--
·.......::.
In the case of municipal bonds, it is clear that
63
the benefit of the tax-exemption of interest income is largely shifted or
passed on to the state and local governments which issue such bonds via the
low interest rates associated ·with these securities.
Chart 4 shows the recent interest rate history of Aaa utility bonds,
10-year U.S. Government obligations. and State and local securities.
~
Over
'.),
the 1971-79 period interest·'rates ·on municipal bonds ·have been rougli1y.~30"'"
\;-
per _cent lower
;:
·~nan- the
.
-
--
. - . ·:~.,,~~-~;i:.
interest -rates ·on ta-xable ·u~s. Goveirime"rit"'Obliga·e-ions· •
•c_o~r~~-banks:."s the -inajor"ho~der o-f mum:dpal bonds (see Cha'rt $y--'~~-=played
a key~o~ecin -the ctfansferc'°of ::';his suosic!y • to::th"ese'gbv~trun1an'i:· bo~~;:!'?f:::•• .
;_:~-':'·
By holding municipal bonds commercial banks have foregone the highe_r"·•
·-:·- ··:·,,•:.:,
inter7st yields available on taxable bonds; and this lower municipal bond
yield has ·passed on to state and local governments some of the benefits of
the tax-exemption of municipal bond interest income for commercial banks.
A
bank would have the same after-tax income if, instead of holding municipal.
bonds, _it held taxable bonds on which it_ paid a tax equa_l _to the_d_if_fe_re~tial~Y.,
lower interest earned on municipal vs. taxable bonds.
This argumeni_:p~ovid.es_ ~:-
a basis for computing the effective tax rate on commercial bank.· income net
of the shifted incidence of the municipal bond tax savings.
To obtain'. this
effective tax rate,- the interest forgon~_ [rom hold_j.ng municipal bo_I?dSi.Ilst_:~d of
taxable bonds is. added to taxes paid while a like amount is added to base income,
reflecting the taxable bond equivalent income of municipal bond income.
:Figuring the effective U.S. tax rate on worldwide income in this
fashion dramatically alters both the-level and time trend of commercial.b8nk
tax rates.
(See Table 5 and Table 1).
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Federal Reserve Bank of St. Louis
The tax rate is effectively increased
64
because the majority of the municipal bond subsidy is passed on to state and
local governments.
The resulting secular increase in the effective commercial
bank tax rate during the 1970's, in sharp contrast to the trend evident in
Table l, reflects the dual phenomena of an increasing rate differential
between taxable and municipal bonds as well as the increased importance of
municipal bond income in overall bank net income over this period.
Foreign tax credits can only be claimed to the extent that foreign
taxes are paid on foreign income.
Therefore, a bank does not avoid taxati.on
by claiming foreign tax credits, but only avoids the double taxation____of_,_,,__
_foreign source income.
. ·-
Thus, worldwide Jax on worldwide income is a more
accurate measure of the burden of taxes on banks than is the U.S. tax on
worldwide inc.ome.
Table l indicates that the worldwide tax rate on worldwide
income is significantly higher than the U.S. rate on worldwide income and
has declined moderately from 23,2 per cent in .1969 to 18, 7 per, cent in 1975 ,Y
llefl';:~;ing their .substantial, foreign .source income, Table 4. indicates .. t,hat
the worldwide tax rate on worldwide income for the 20 large .banking _organtzations
,.-i-s --much--c,greater .·than-flieir- -u .S. rate 'on ..__WorldwiQ.e_ inCOme:
20 .-8 ·per. ~c~t .ver.sus
4.9 per· cent iii"l977, ·Additionally,. the·worl.dwide.•r<1te for the··20::large banking organizations has increased __ moderately over time,
The overall tax burden on banking organizations may be assessed
either by considering the worldwide tax on worldwide taxable income (worldwide
income less tax-exempt income) or by estimating the effective.tax rate on
worldwide income assuming that there were no true-exempt sources of income so
1/
Tables 1 through 3 understate worldwide taxes on worldwide income to the
extent that foreign taxes paid exceed foreign tax credits claimed.
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Federal Reserve Bank of St. Louis
65
that banking organizations would_invest in assets that yielded taxable
income.-!/ In Tables 1 through 4 the latter method is titled Worldwide Rate on
Worldwide Tax-Equivalent Income.
For all banking organizations this tax
rate has increased moderately from 45 per cent in 1969 to 4 7, 9 per cent fo_
1975 (Table l).J:./ This same trend is indicated by the worldwide rate on worldwide taxable income which has increased from 41.9 per cent in 1969 to 47,7
per cent in 1975 (Table 2).
For _the 20 large banking organizations the worldwide rate .on
.. ·.,.,~··•
worldwide ta,..,equivalent income has remained nearly. constant at 38 ,5 per cent
. from 1974 \~\;-77 ,_;hH~
~~: worldwide
rate\r;:iidwide t;,,;-a~·le
-;~~:~/~~~
.
-.
increased moderately ·fr~m. 30;2 per cent 'f'o -31,7 per cent over this pe.riod
(Table 4).
By using either method, the tax burden on these large banking
organizations is considerably greater than indicated by the U,S, rate on
worldwide incoDIE! of between 2 per cent and 5 per cent over the 1974-77 period,
;!/
See the Appendix for a discussion of the technique for estimating this
income.
2/ See the Appendix for a discussion of the reasons for these rates possibly
-;xceeding 48 per cent.
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Federal Reserve Bank of St. Louis
Table 1
Sources of Tax Savings and Federal Tax Rates· of Banking Organizations
(Base Income Includes Municipal Bond Interes·t . Income).,
;L·
Base Income ($ millions)
1973
1974
'6,041.3
6,415.8
6,754.6
7,438.3
:4a,o
48.0
48.0
48,0
(1.5)
(1.5)
(1.4)
(1.7)
((23;4)
' :: (25,3)
. (26.5)
(28,0)
(29.2)
*
*
(2.8)
1969
1970
1971
4,703.8
6,039.2
6,093.7
48.0
48.0
48,0
Maximum Statutory Rate (%)
Investment Credit (%)
(1.1)
1972
(. 9)
(.6)
I,' ..
(21. 5)
·c20·;9)
IRS Additions to Reserves for Bad Debts (%)
'*
*
(2.6)
, (5,0)
Accelerated Depreciation (%)
*
*
'. (,4)
(,4)
1,6
4.4
Tax-Exempt Bond Income (%)
__!ill
ti
(. 3)
*
2,3
6.4
1.6
Miscellaneous'};/ (%)
(2, 2)
(1.1)
Worldwide Rate on Worldwide Income(%)
23.2
25.4
22.3
20,2
22.3
21.9
18.7
Foreign Tax Credit(%)
(1, 7)
(2,2)
(3,2)
(3, 7)
(5,4)
(7, 7)
(7 .4)
U.S. Rate on Worldwide Income(%)
21.5
23.2
19,1
16,5
16.9
14.2
11.3
45.0
46,4
45.9
45.8
_48.7
Worldwide Rate on Worldwide Tax-
--Equivalent __I~co~-- (%)
.-
_ 49.6 ___ 47~_9__ _;,
NOTE: See the Appendix for data and derivation of figures,
·,.
* Indicates data not available.
1/ Miscellaneous includes a balancing figure as well as IRS additions to reserves for bad debts and accelerated
depreciation where· these figures are not sepanitely_;repo rted. __ __
Source: U.S. Department of the Treasury, Internal Revenue Service, Statistics of Income: Corporation Income Tax
Returns, 1969-1975 (preliminary).
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Federal Reserve Bank of St. Louis
i
Table 2
Sources of Tax Savings and Federal Tax Rates of Banking Organizations
(Base Income Exclu,des Municipal Bond Interest Income)
Base Figure ($ millions)
1969
1970
1971
1972
1973
1974
2,594.3.
3,410.7
3,127.8
2,853,9
2,876.0
2,811.4
2,912.3
~
'Maximum Statutory Rate (%)
48.0
48,0
48.0
48.0
48,0
48.0
48,0
Investment Credit(%)
(2. 0)
(l.l)
(l.7)
(3.1)
(3.4)
(3.4)
(4.2)
(5,1)
(10, 5)
(,8)
(.9)
3,0
44.9
IRS Additions to Reserves for Bad Debts(%)
Accelerated Depreciation(%)
Miscellaneous 1:_/ (%)
*
*
(4.1)
Worldwide Rate on Worldwide Taxable Income (%) 41. 9
*
*
(2.0)
*
*
(6. 8)
9,2
5,1
15.6
3.9
43.4
42o7
49,7
52.6
47.7
*
*
(.8)
Foreign Tax Credit(%)
(3, 0)
(3,8)
(6,2)
(7 ,8)
(12, O)
(18, 5)
(18, 8)
U,S, Rate on Worldwide Taxable Xncome (%)
38,9
41.l
37,2
34,9
37.7
34.l
28.9
NOTE: See the Appendix for data and derivation of figures,
*- Indicates data not available.
Jj Miscellaneous includes a balancing figure as well as IRS additions to reserves for bad debts and accelerated
depreciation where these figures are not separately reported,
-source: U, S, Department of the Treasury,·-Internal· Reyenue Service 1-Statistics--of -Incol!le: --Corporation Income Tax
Returns, 1969-1975 (preliminary},
' '
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Federal Reserve Bank of St. Louis
a)
~
68
Table 3
Sources of Tax Savings and Federal Tax Rates
of Banking Organizations by Size Classes: 1974
A'sset Size Classes ($ millions)
50-100
100-500
> 500
~
Base Income ($ millions)
Maximum Statutory Rate ('l.)
Investment Credit ('l.)
Tax-:-Exempt Bond Income ('l.)
IRS Additions to Reserves for Bad Debts ('l.)
·;.~,-7··.7,.c:::.·7~,,..
:·. -.
- -, .-.~ - -
z·:·:::-T::~-:-~~::~-::._·._..,,
Accelerated Depreciation' ('l.)
-
·--- .. •----
'
-·
-- ··--.
2/
.
----
.
---
Mi9-<;~~laneous::-. l'l.)
Worldwide Rate on Worldwide Income ('l.)
1137.6
883.3
1060.0
3684. 9
48.0
48.0
48;0
48.0
6754. 71/
48.0
: (. 7)
(.8)
(1.1)
(1.8)
(1.4)
(20.5)
(29. 0)
(33.5)
(28.3)
(28. 0)
'c2.1>
(3. 9)
(5.8)
(4.9)
(.2)
(.3)
_c.1)
(.5)
(4.8)
-..
(. 3)
_i . 5
6.5
9.6
9.3
8.4
25.1
·20.6
16.9
21.8
21.9
(14.1)
0.0
0.0
0.0
25.l
20.6
16.9
7. 7
14.2
Wo!ldwide Rate _on W~rld~ide Taxable Income (o/.,) 43.8
52.0
56.0
53.2
52.6
43.8
52.0
56.0
18.8
34.1
45.9
-----
49.3
50.0
49.8
49. 6
Foreign Tax Credit ('l.)
U.S. Rate on WorldwJ.de Income ('l.)
.
'
(7. 7)
'
J.J,s_;"'Rate on Woridwide_ Tax~ble Income ('l.)
wO:r1dwide Rate on Worldwide Tax.. Equivalent
7 ~~com~~(~'l.~)-------~
'
\
i/·~~~al 1n:~{~des e~timates for 318 banks for which asset; were llot separately reported.
Miscellaneous includes a balance figure as well as IRS additions to reserves for
bad debts and accelerated depreciation where these figures are not separately reported.
2/
Source:
U.S. Department of the Treasury, Office of Tax Analysis.
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Federal Reserve Bank of St. Louis
-'-'-'-·
69
Table 4
Sources of Tax Savings and Federal Tax Rates
of 20 Large Banking Organizations: 1974-77 Y
1974
Base Income?/ ($ millions)
Statutory Rate(%)
Investment Credit (%)
1975
1976
1977
2580. 9
2941.6
3134.1
3428.2
48.0
48.0
48.0
48.0
(.68)
(. 81)
(.87)
(2.56)
(16. 25)
(16.49)
(18. 72)
(17.34)
Accelerated Depreciation(%)
(6.41)
(8. 58)
(8.17)
(7.27)
Miscellaneou.l' (%)
(3. 43)
(. 35)
(1.55)
(. 90)
Worldwide Rate on Worldwide
Income (%)
18. 76
20.92
21.16
20. 79
(%)
(16, 77)
(20,521
(16,59)
(15.85)
U.S. Rate on Worldwide Income(%)
1.99
,40
4.57
4,94
30.21
32.74
Tax Exempt Income (%)
l'ore:tgn Ta:,ces
Worldwide Rate on Worldwide
Taxable Income(%)
U.S., Rate on Worldwide
,. Taxable lnco.111es~2 __ ·
l~ --
Worldwide Rate on Worldwide
TaxCEquivalent Income (%)
3.21
38.54
32._01 -
~ - - ~ · - · _6,91
39.04
.31.69
.1,53.
. 38.64 --···
1/
The panel of large banking organizations was slightly different for 1974.
However, the difference would have an insignificant effect on the tabulations.
'.?:./
The Base Income figure for the computations summarized in the table is net
earnings before Federal income taxes.
This base figure is derived by reducing
the net earnings before income taxes, as shown on a firm"s income statement,
by the provision for state income taxes where such taxes are included in the
income tax provision. This is done because state income truces are merely
another deduction for purposes of Federal income taxes. The base figure which
results from this subtraction is a more accurate standard for comparison with
the Federal statutory rate.
·
3/ Categories constituting less than 2.4 per cent of net earnings before Federal
income taxes are not required by the SEC to be separately reported but are
rather shown as 'miscellaneous'. This item also includes those categories that
were broken out but inconsistently reported during the period 1974-77, e.g.,
excess loan loss provision, nondeductible losses and costs, unrepat~iated
foreign earnings or capital ga~ns.
Source:
Tax Notes, T~x Analysts and Advocates; and Annual Reports to Shareholders and SEC lOK Reports.
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Federal Reserve Bank of St. Louis
70
Table 5
Effective Federal Tax Rates on Bank Worldwide Income
Net· of Shifted Municipal Bond Tax Savings 1/
1970
1971
1972
.33
.30
1973
..
:::<:_34
• 37
.39
--- .. ,
. ..
~
.·•
1/ ·computations are based on the assumption of an opportunity
- ~ost ·of funds equal to the rate earned on U.S. Government
obligations. Actual book rates of return for U.S. Government
and municipal bonds are computed from IRS data; the rate
-•differential between these series is used to gross up municipal
bond income; and this figure is added to tax liability net of
all credits as well as to income. The effective U.S. Federal
tax rate on worldwide income is the quotient of these last two
numbers.
Source:
See Table A-1 (Appendix).
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Federal Reserve Bank of St. Louis
71
Chart 1
The Sources of Tax Savings and Federal Tax Rates of Banking Organizations
Percent
48 Maximum
Statutory!
AateJ
40
36
I
28
!
iiillll
-r---,
- ,r----,I
I
----
20 I
_,-,
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1969
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1970
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1912
''
''
'
1973
1974 ;
1975 i
MUNICIPAL BOND INCOME'
11D
INVESTMENT TAX CREDIT:
FOREIGN TAX CREDIT!
[lilil]
IRSADDITIONSTO RESERVES FOR BAD DEBTS'
ACCELERATED DEPRECIATION
Source:
Table 1.
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Federal Reserve Bank of St. Louis
--- r-- 7
U.S. RATE ON WORLDWIDE INCOME
1
·
72
Chart 2j
The Effect of the Alternative Treatment of Municipal Bond Income on the
Sources of Tax Savings and Federal. Tax Rates of Banking Organizations
Percent1
48 Maximum'
Statutory:
Rate
44
40 ',
-----,,..
I
I
I
I
I
I
36,
·,I
I
I
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28J
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1969
•
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---:
,.
~--,
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1970
1971 .
ACCELERATED DEPRECIATION
Table 2.
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Federal Reserve Bank of St. Louis
4
I
I
I
I
I
I
INVESTMENT TAX CREDIT:
Source:
I
I
1972
IlIIII]
I
10 l
I
.,
FOREIGN TAX CREDIT\
DD
I
I
I
I
I
20
:
I
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•· '·
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1973 ',
1974,
1975,
IRS ADDITIONS TO RESERVES FOR BAD DEBTS :'
.-----,
:
: 0. S. RATE ON WORLDWIDE INCOME;
._____,
- -- -
i
73
Chart 3.
Relative Interest Rates and Commercial Bank Holdings of Municipal Bonds.
Quarterly Averages
I
Percent
1.0
MUNICIPAL BOND RATE
!
U.S. GOV'T BOND RATE :
.8
.6
MUNICIPAL BONDSi
.2
COMMERCIAL BANK ASSETS [
1969:
1971[
. -, ·1913: . --·---·-·1975; ... ___ - .. 1977:
19791
NOTE:
The municipal bond rate is for Moody's Aaa municipal bonds. The
Government bond rate is for a 10-year constant maturity U.S.
Government bond series.
Source:
Federal Reserve Board.
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Federal Reserve Bank of St. Louis
74
Ch•rt•I
Long-term Interest Rates *
Monthly A,erages \
Percent per annum I
:-11
1
5J
11
~~,_
1
!973
I
1975
I
1977
l
1979
5
-I
1·
Ct;;~;,
Percent-01-0--;;-ts~nding S~te and Local Securities Held by Commercial B~nks '',
Percent t
86 \
*Source:
- -f:'9---~
deral Reserw Boen::I
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Federal Reserve Bank of St. Louis
75
Appendix
TableA-1 gives the data from which Tables 1 and 2 were derived.
Sources of tax savings are computed as follows:
is specified.
deductions."
First, base income
In Tables 1 and 3 base income is "total receipts less total
In Table 2 taxable income, defined as Table 1 base income minus
municipal bond interest income, is the base.
In Table 4 financial statement
income is used as the base.
Next, the percentage point tax savings from a source which reduces
taxable income (municipal bond income, IRS additions to loan-loss reserves and
...,
.,
acceleratei depreciation) is computed as 48 times the tax saving- item divided
~i
. by base income.
Finally, the percentage·point tax savings from a tax credit
source (the investment tax credit and the foreign tax c·redit) is computed as
100 times the ratio of the tax credit item -to base income.
In Tables 1, 2 and 3 the U.S. rate on worldwide income is ·computed
as .100 times_- the ratio of current tax liability _(including the minimum tax on
tax preference items and net of all tax credits) to:basesincome". In Table'4
this rate is the difference between 48 per·cent- and the sum of the _percentage
point sources of tax savings.
In all these tables the worldwide rate on world-
wide income is the sum of the U.S. rate on worldwide income and the percentage
point tax savings due to the foreign tax credit.
The U.S. and worldwide rates
on worldwide taxable income are computed in a like manner except for the
exclusion of municipal bond interest income from.base income.
For the computation of the worldwide rate on worldwide tax-equivalent
income it is assumed that in the absence of tax-exempt bonds, banks would
invest in securities yielding the !(}-year constant-maturity U.S. Government
44-240 0 - 79 - 6
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Federal Reserve Bank of St. Louis
76
bond rate, and that interest on these securities would be taxed at a 48 per cent
rate.
Thus, for this computation base income is grossed up by municipal bond
interest times the per cent by which the 10-year constant maturity U.S. Government bond rate exceeds Moody's Aaa rate for State and local bonds.
3).
This gives the tax-equivalent income to current bank income.
(See Chart
Since it is
assumed that taxable bond interest income is taxed at a 48 per cent rate, an
estimated tax of .48 times tax equivalent bond income is added to current
worldwide taxes_,
This sum times 100 divided: by tax equivalent' ..incOlD.e--is- the ·h,-.
worldwide rate on worldwide tax-equivalent income.
In the tables and charts of the text some constructed tax--rates exceed
.
48
per~~cent while --Some
major tax saving items.
.
actual tax rBtes eXCeed the maximum statutory rate net of
There are two reasons for these tesulta.
F_irst,.
J
though the taxes saved through the various t~ preference items are computed at a
,•
48 per cent lD:a"rgincll:;.tax rate, banks may not realize tax savings to this
extent either bec3use a"48 per cent Federal tax rate does not apply or because Of
the mini.mum tax on tax preference items •.!/
Second, in Tables· l_ through 3 the · •·
statutory tax is implicitly figured as a percentage of base income plus
accelerated depreciation and IRS additions to reserves for bad debts, wher~a~
the percentage point sources of tax savings are figured as a percentage of base
income only. Jj
!/
For the period covered by the tables up to 1974, the statutory Federal
corporate income tax rate was 22 per cent on the first· $25,000 of income with a
surtax of 26 per ceht on any income over this amount. ·The Tax Reduction Act of
1975 reduced the statutory rate on the first $25,000 income to 20 per cent and
increased income exempted from the surtax to $50,000 for the years 1975-77. A
special 10 per cent tax is imposed on the amount by which the total of certain
tax preference items exceeds the sum of current tax liability plus $30,000.
2/
Ideally economic income should be used as the base. There appeared to be
baSis for employing a different approximation to economic income than base
income for the calculations in Tables 1 through 3. Table 4 is constructed using
financial statement income as the base.
-nc,
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Federal Reserve Bank of St. Louis
77
For both these reasons, the percentage point sources of tax savings
are somewhat overstated.
Thus, statutory tax rates net of sources of tax
savings can be inferior to actual tax rates, or actual tax rates gross of
sources of tax savings can exceed 48 per cent.
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Federal Reserve Bank of St. Louis
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Federal Reserve Bank of St. Louis
Table A-1
Construction.of Effective Tax Rates and Sou~ces_of Tax Savings
( $ mill ions)
~
---121.Q_
_ill!_
:.:..:.!.W_
--117.L
-1EL
_illL
64,560.8
56,684,9
74,463.6
66,554.3
81,043.4
78,167.1
88,979.2
83,326.4
86,429.7
89,153.1
85,710.0
95,249.3
N/A
N/A
3,391.9
2,109.5
3,808.8
2,628.5
4,386.6
2,965.9
4,675.5
3,187.4
5,392.6
3,539.8
5,964.8
3,943.2
4,526.0
930.3
1,068.6
1,223.9
1,416.1
1,686.1
1,871.8
N/A
4,703.8
6,039.2
6,093.7
6,041.3
6,415.8
6,754.6
7,438.3
803.0
Investments in Govt. Obligations:
U.S.
State & Local
Interest on Govt. Obligations:
U.S.
State & Local
_ Business Taxes_Paid
Total Receipts Less Total Deductions
Depreciation Deduction
7,251.8
989. 7
1,139.6
1,373.7
1,747.5
2,191.4
2,519.0
1,422.8
1,072.1
1,423.6
1,699.6
2,603.9
3,048.8
3,938,9
51.2
36.2
52.4
87.7
98,2
94.4
123.5
1,567.4
1,410.9
1,305.3
1,526.1
1,573.5
1,512.1
130.8
194.3
221.6
345.0
521.0
547.9
~
00
Bad Debt Deduction
Investment Credit
·---·
Federal Corporate Income Tax:
Normal Tax, Surtax, Alternative
Tax, and Additional Tax on
Preference Items
Foreign Tax Credit
Tax Preference Items:
Accelerated Depreciation
IRS.Additions to Reserves
for Bad Debts
Source:
_U~_s.
1,139.,4:
77 .8
N/A
N/A
50.2
54.8
N/A
49.0
N/A
N/A
N/A
333.7
626.8
N/A
397.1
N/A
_Department of_ the Tr:~asurr, Intern~l Revenu~ Se~ice,~
~--- -----Tax Returns.
Statistics of Income:
Corporation Income
79
The CHAIRMAN. The difficulty is once you move with that principle, once you provide interest on reserves, it seems to me the
argument is going to be very strong that the interest ought to be at
the market rate and it ought to be comprehensive and it ought to
cover all reserves and once you do that, of course, the cost would be
very, very great indeed.
Mr. MILLER. Congress has resisted that for 65 years.
The CHAIRMAN. This is the point of resistance. It's easy to resist
it when the principle is here. Once you have breached the principle
it's much harder, particularly when you have a determined and
effective lobby like the American Bankers Association. They do a
marvelous job. They've got the most capable members, including
members of this staff, who are working for them. So I'm concerned
about that.
Would a voluntary reserve requirements system with interest on
reserves have a high probability of solving the membership problem? Wouldn't it be just a giveaway to the banks, with only a low
probability of helping the declining reserve-deposit base?
Mr. MILLER. Compared to noninterest bearing reserves, interest
on reserves would obviously make membership more attractive,
and it would seem to me we would have a more permanent solution. If you merely put some relief into effect now, but over time
you found you only had legislated a stopgap solution--it seems to
me the problem will come back. We'll have to face the same
problem later, whether in terms of interest payments or lower
reserves, or whatever. That's what I think. I think our proposal,
which includes the Earnings Participation Account, has a better
chance of avoiding the need for other proposals coming before this
committee later on.
The CHAIRMAN. Required reserves held at the Federal Reserve
bank bear a remarkable resemblance to demand deposits at a
commercial bank. Neither pays any interest. There is a prohibition
against interest payment on demand deposits and no authorization
for the Fed to pay interest on reserves. Also, both demand deposits
and reserves can be drawn against by check. Section 19(f) of the
Federal Reserve Act is clear on that. It says:
The required balance carried by a member bank with a Federal Reserve bank
may, under the regulations and subject to such penalties as may be presented by
the Board of Governors of the Federal Reserve System, be checked against and
withdrawn by such member banks for the purpose of meeting existing liabilities.
So you have a law now on the books prohibiting the paying of
interest on demand deposits and a corresponding action that the
central bank doesn't pay interest on reserves.
Given this marked resemblance, why should we allow interest
payment on reserves as long as interest payment on demand deposits is prohibited? If we were to lift the prohibition on demand
deposits, at least consumers would benefit.
Just a little while ago, you pointed out that this committee voted
to permit interest to be paid on demand deposits in connection
with NOW accounts. I think that's consistent because NOW accounts would permit a kind of demand deposit to bear interest.
Now we're being asked to lift the prohibition. I'd rather go ahead
and pay interest on demand deposits without lifting the prohibition
on demand deposits.
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Federal Reserve Bank of St. Louis
80
Mr. MILLER. Senator, I understand this committee passed a provision in the NOW account bill that would allow interest payment on
reserves with the Federal Reserve up to a certain limit. That was
the point I was trying to make.
The CHAIRMAN. Why couldn't we put that in this bill?
Mr. MILLER. That's what the Earnings Participation Account is it
seems to me.
The CHAIRMAN. No; I'm talking about interest on demand deposits.
Mr. MILLER. That could be placed in this bill or any bill. The
issue of interest on demand deposits is a separate one, and perhaps
an issue which needs separate consideration. It does involve different constituencies. I'm just pointing out that the prohibition of
interest on demand depositis has resulted in, in recent timeswhen we're having, for the first time in peacetime history, higher
rates of inflation and correspondingly the higher rates of interest
that go along with higher inflation-in individuals and businesses
finding ways to place deposits in accounts that do bear interest. So
we have seen a shrinking in the use of noninterest bearing demand
deposit accounts. We have seen it because of NOW accounts; we
have seen it because of share drafts; we have seen it because of the
automatic transfer service; and we have seen the use of - The CHAIRMAN. Here you have a situation where the saver who
puts his money in the bank on demand deposit in the checking
account gets no interest and the law prohibits him from getting
interest. Now we're proposing that the bank be paid interest on
their reserves, which is a kind of a checking account on which they
can draw a check, but the depositor, the consumer, the average
person who comes in and puts his money on deposit isn't allowed
by law to get an interest payment.
Mr. MILLER. I think that is a completely separate issue.
The CHAIRMAN. I think they are very similar.
Mr. MILLER. In fact, my argument is that the central bank now
has authority to pay interest on reserves.
The CHAIRMAN. To pay interest on demand deposits?
Mr. MILLER. To pay interest on reserves.
The CHAIRMAN. I beg your pardon.
Mr. MILLER. The central bank is an agency of the Federal Government, and I think that's a different thing entirely. I just believe
it would be a mistake to try to join that issue in this legislation,
which is directed to monetary policy and the stucture of banking.
The issue of whether individuals or businesses should receive interest on demand deposits is so separate and apart, that I think it
would be inappropriate to get it mixed up with this issue.
The CHAIRMAN. When Robert Carswell, Deputy Secretary of the
Treasury, appeared before the Housing Banking Committee on
H.R. 7, he said:
In the current budget environment, a solution to the membership problem involving a revenue loss under $200 million, net of tax recoveries, is essential. We
understand that the Committee staff estimates that the net cost of fully implemented H.R. 7 would be approximately $170 million. While this expense does not exceed
the limit of acceptability, these next few years will be ones of budget stringency.
Accordingly, we would encourage exploration of proposals that involve lower costs.
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Federal Reserve Bank of St. Louis
81
- · The revenue loss of my bill, S. 85, is only $60 million after tax
recovery. Yet it would solve the membership problem completely.
Let me ask you a hypothetical question: If you did not have a
binding constraint placed upon revenue loss by the Treasury, how
much would you be willing to spend to solve the membership
problem, keeping in mind the very serious inflation problem that
faces the economy?
Mr. MILLER. Mr. Chairman, I agree with the Treasury parameters. And because I know we don't live in an environment free of
inflation and budgetary worries, I don't know I would be in favor of
if we had no such worries. We do have those worries, and I think
the Treasury limit is about right. I would not suggest, and we have
not recommended, any program that would impact the Treasury
any greater than that limit.
The CHAIRMAN. Except that S. 85 as unmodified before the Fed
did its handiwork, would have saved substantial amounts over
what the Federal Reserve bill would.
Mr. MILLER. Yes, but it would have done so at the cost of requiring more nonearning deposits from present nonmembers. If you
look at page 17, S. 85 requires $500 million more in nonearning
deposits from nonmembers than MOD-85. We were just trying to
recognize the opposition to the mandatory concept, to minimize the
burden, and to make the proposal more attractive to constituencies
who have indicated concern. Yet we tried to do that within parameters the Treasury, and we ourselves, feel are reasonable.
If your bill is passed by the Congress and enacted into law, I
certainly agree with you that it would resolve the issue. We are
saying that we think, from listening to the legitimate concerns of
constituencies within the last 6 months, that we need a more
generous arrangement if we are to have any chance of success.
The CHAIRMAN. Now let me just ask one more question. The
Board's staff study of the burden of membership estimated the
burden on the basis of the cost of reserves, the benefits derived by
the banks through free services, the benefits of access to the discount window, and the benefits of Federal Reserve float. Both S. 85
and H.R. 7 take the cost of the reserves and benefits and the
discount window and free services into account, but they don't
really handle the question of the benefit banks get from float. Float
is now edging well over $5 billion a day compared to about $2
billion in 1975 and this cost the Treasury $200 to $300 million in
lost revenue last year. The Board's pricing schedule doesn't take
float into account. I have written you about my concerns about
float and Governor Coldwell told the committee we would have a
report this month about the float. Since float is a benefit of membership, why shouldn't we include a mandate in the legislation that
the cost of float be kept low?
Mr. MILLER. Mr. Chairman, you certainly are correct that for
whatever reason float has been creeping up and has been unacceptably high recently. We intend to get it down and get it under
control again, and we are going to report to you on this. But I
would hate to see this legislation become a place for locking in
details like that, which can be handled by our assurance to you to
handle it and by our reports to you. I think we can handle it, but
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Federal Reserve Bank of St. Louis
82
we need the flexibility to determine whether we should reduce it to
zero, whether we should price it. We could reduce it to zero.
The CHAIRMAN. We have gotten assurances before from the Federal Reserve on float and the results, as I point out, have been bad,
from $2 billion to $5 billion, despite the constant assurances and
I'm not asking for a specific figure here. I'm simply asking for
language in the legislation that would indicate that it's desirable to
hold float down and it should be reduced.
Mr. MILLER. We certainly concur with that objective.
The CHAIRMAN. Well, thank you very, very much, Mr. Chairman,
once again, for a superlative job of presentation and your being
very responsive to our questions and we appreciate it.
Mr. MILLER. Thank you, Mr. Chairman.
[Whereupon, at 12:15 p.m., the hearing was adjourned.]
[Copies of the bills being considered and Chairman Miller's statement and attachments follow:]
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96TH CONGRESS
1ST SESSION
s• 85
To amend the Federal Reserve Act to provide for maintenance of reserves in
order to facilitate the implementation of monetary policy, to promote competitive equality among depository institutions, to require the imposition of
service charges for services by Federal Reserve banks, and for other purposes.
IN THE SENATE OF THE UNITED STATES
JANUARY
Mr.
18 (legislative day,
JANUARY
15), 1979
introduced the following bill; which was read twice and referred
to the Committee on Banking, Housing and Urban Affairs
PROXMIRE
.A BILL
To amend the Federal Reserve Act to provide for maintenance
of reserves in order to facilitate the implementation of monetary policy, to promote competitive equality among depository institutions, to require the imposition of service charges
for services by Federal Reserve banks, and for other purposes.
1
Be it enacted by the Senate and House of Representa-
2 tives of the United States of America in Congress assembled,
3 That this Act may be cited as the "Monetary Policy Im4 provement Act of 1979".
II-E
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1
2
DEFINITIONS
SEC. 2. Section 19(a) of the Federal Reserve Act (12
3 U.S.C. 461(a)) is amended by adding at the end thereof the
4 following new paragraphs:
5
"The term 'depository institution' means-
6
7
"(1) any insured bank as defined in section 3 of
the Federal Deposit Insurance Act;
"(2) any mutual savings bank as defined in section
8
9
3 of the Federal Deposit Insurance Act;
"(3) any savings bank as defined in section 3 of
10
11
the Federal Deposit Insurance Act;
12
13
"(4) any insured credit union as defined in section
101 of the Federal Credit Union Act;
"(5) any member as defined in section 2 of the
14
15
Federal Home Loan Bank Act;
"(6) any insured institution as defined in section
16
17
401 of the National Housing Act; and
18
"(7) for the purpose of section 13 and the four-
19
teenth paragraph of section 16, any association or
20
entity which is wholly owned by or which consists only
21
of institutions referred to in clauses (1) through (6).
22
"The term 'bank' means any insured or noninsured
23 bank, as defined in section 3 of the Federal Deposit Insur24 ance Act, other than a mutual savings bank or a savings
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Federal Reserve Bank of St. Louis
85
1 bank as defined in section 3 of the Federal Deposit Insurance
2 Act.
3
"The term 'transaction account' means a deposit or ac-
4 count on which the depositor or account holder is allowed to
5 make withdrawals by negotiable or transferable instrument or
6 other similar item for the purpose of making payments to
7 third persons or others. Such term includes demand deposits,
8 negotiable order of withdrawal accounts, savings deposits
9 subject to automatic transfers, and share draft accounts.
10
"In order to prevent evasions of the reserve require-
11 ments imposed by this Act, after consultation with the Board
12 of Directors of the Federal Deposit Insurance Corporation,
13 the Federal Home Loan Bank Board, and the National
14 Credit Union Administration Board, the Board of Governors
15 of the Federal Reserve System is further authorized to deter16 mine, by regulation or order, that an account or deposit is a
17 transaction account if such account or deposit may be used to
18 provide funds directly or indirectly for the purpose of making
19 payments or tranfers to third persons or others.".
20
21
REPORTING REQUIREMENTS
SEC. 3. Section ll(a) of the Federal Reserve Act (12
22 U.S.C. 248(a)) is amended by adding at the end thereof the
23 following new paragraph:
24
"The Board may require any depository institution
25 specified in this paragraph to make, at such intervals as the
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Federal Reserve Bank of St. Louis
86
1 Board may prescribe, such reports of its liabilities and assets
2 as the Board may determine to be necessary or desirable to
3 enable the Board to discharge its responsibility to monitor
4 and control monetary and credit aggregates. Such reports
5 shall be made (1) directly to the Board in the case of member
6 banks and in the case of other depository institutions for all
7 liabilities subject to reserve requirements, and (2) for all other
8 reports to the Board through the (A) Federal Deposit Insur9 ance Corporation in the case of insured State nonmember
10 banks, savings banks, and mutual savings banks, (B) National
11 Credit Union Administration Board in the case of insured
12 credit unions, (C) Federal Home Loan Bank Board in the
13 case of any institution insured by the Federal Savings and
14 Loan Insurance Corporation or which is a member as defined
15 in section 2 of the Federal Home Loan Bank Act, and (D)
16 such State officer or agency as the Board may designate in
17 the case of any other type of bank, savings and loan associ18 ation, or credit union. The Board shall endeavor to the maxi19 mum extent feasible to avoid unnecessary burdens on report20 ing institutions and the duplication of other reporting require21 ments, and any data therefrom shall be made readily availa22 ble to the Board. The Board may classify depository institu23 tions for the purposes of this paragraph and may impose dif24 ferent requirements on each such class.".
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1
2
RESERVE REQUIREMENTS
SEC. 4. Section 19(b) of the Federal Reserve Act (12
3 U.S.C. 461(b)) is amended to read as follows:
4
"(b)(l) Every bank shall maintain reserves against that
5 portion of the total of its demand deposits and transaction
6 accounts in excess of $40,000,000 in the ratio of 13 per
7 centum, or in such other ratio not greater than 14 per
8 centum and not less than 12 per centum, as the Board may
9 by regulation prescribe solely for the purpose of implement10 ing monetary policy.
11
"(2) Every bank shall maintain reserves against that
12 portion of its time and savings deposits in excess of
13 $40,000,000 in a ratio of14
"(A) 6 per centum against time deposits with ini-
15
tial maturities of one hundred and seventy-nine days or
16
less or in such other ratio not less than 4 per centum
17
or more than 8 per centum, as the Board may by regu-
18
lation prescribe solely for the purpose of implementing
19
monetary policy; and
20
"(B) 1 per centum against time deposits with ini-
21
tial maturities of one hundred and eighty days or more
22
or in such other ratio not less than one-half of 1 per
23
centum or more than 2 per centum, as the Board may
24
by regulation prescribe solely for the purpose of imple-
25
menting monetary policy; and
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1
"(C) 3 per centum against savings deposits other
2
than transaction accounts or in such other ratio not
3
less than 1 per centum or more than 5 per centum, as
4
the Board may by regulation prescribe solely for the
5
purpose of implementing monetary policy.
6 In determining its reserve requirement under this paragraph,
7 a bank shall apply the $40,000,000 exemption provided
8 herein in proportion to the distribution of its aggregate time
9 and savings deposits among (i) time deposits with initial ma10 turities of one hundred and seventy-nine days or less, (ii) time
11 deposits with initial maturities of one hundred and eighty
12 days or more, and (iii) savings deposits other than transaction
13 accounts, as reported in the bank's most recent report of con14 dition.
15
"(3) Every depository institution other than a bank shall
16 maintain reserves against that portion of its transactions ac-
17 counts in excess of $40,000,000 in the ratio of 13 per
18 centum, or in such other ratio not greater than 14 per
19 centum and not less than 12 per centum as the Board may by
20 regulation prescribe solely for the purpose of implementing
21 monetary policy.
22
"(4) Upon a finding by the Board that extraordinary
23 circumstances require such action, the Board may impose re24 serve requirements outside the limits otherwise prescribed by
25
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Federal Reserve Bank of St. Louis
LIBRARY
89
1 may be extended for further periods not exceeding thirty days
2 by affirmative action by the Board in each instance. The
3 Board shall ptomptly transmit to the Congress a report of
4 any exercise of its authority under this subsection and the
5 reasons for such exercise.
6
"(5) If the Board determines that such action is neces-
7 sary to the implementation of monetary policy, then in addi8 tion to any reserves required to be maintained pursuant to
9 p~ragraphs (1), (2), and (3) of this subsection, any bank sub10 ject to reserve requirements shall maintain reserves in such
11 ratios as the Board may prescribe against net balances owed
12 by domestic offices of banks in the United States to their
13 directly related foreign offices and to nonrelated foreign
14 banks and against their borrowing based on loans to United
15 States residents made by overseas offices of banks with of16 fices in the United States, and assets (including participa17 tions) held by foreign offices of banks in the United States
18 acquired from their domestic offices.
19
"(6) During any period that a depository institution is
20 maintaining reserves pursuant to this section, such depository
21 institution shall be entitled to all the privileges of member22 ship in the Federal Reserve System except that, if it is not
23 otherwise a member, it may not hold stock in, or vote for any
24 director of, a Federal Reserve bank.
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1
"(7) A nonmember bank not maintaining reserves pur-
2 suant to this section shall be entitled to the same discount
3 and borrowing privileges as member banks except that the
4 Board as a condition of access to or maintenance of such
5 privileges may require certification of solvency of such bank
6 from the Federal Deposit Insurance Corporation.
7
"(S)(A) With respect to any depository institution that is
8 not a member of the Federal Reserve System on August 30,
9 1978, the required reserve imposed pursuant to this section
10 on the effective date shall be reduced by 75 per centum
11 during the first year that begins after the effective date, 50
12 per centum during the second year, and 25 per centum
13 during the third year: Provided, however, That the reduction
14 in required reserves may be increased in any year and ex15 tended for up to two additional years for any nonmember
16 depository institution whenever the Board determines, pursu17 ant to regulation, that the application of the reserve require18 ments provided in this section would seriously impair the
19 safety and soundness of such institution.
20
"(B) With respect to any member bank, the amount of
21 required reserves imposed pursuant to this section on the ef22 fective date that exceeds the amount of required reserves
23 maintained during the reserve computation period immedi24 ately preceding the effective date shall be reduced by 75 per
25 centum during the first year that begins after the effective
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91
1 date, 50 per centum during the second year, and 25 per
2 centum during the third year: Provided, however, That the
3 reduction in required reserves may be increase_d in any year
4 and extended for up to two additional years for any member
5 bank whenever the Board determines, pursuant to regulation,
6 that the application of the reserve requirements provided in
7 this section would seriously impair the safety and soundness
8 of the bank.
9
"(9) In order to provide for an orderly transition period,
10 the Board may implement, on a gradual basis over a period
11 of forty-eight months, the decreases in reserve requirements
12 imposed by this section on member banks from those reserve
13 requirements applicable on the effective date of this section.
14
"(10) In the case of affiliated banks and affiliated non-
15 bank depository institutions, the total deposit liabilities
16 exempted from reserve requirements pursuant to subsections
17 (1), (2), and (3) shall not exceed in the aggregate for such
18 affiliated groups the product resulting from multiplying the
19 number of institutions in such affiliated group on August 1,
20 1978, by $40,000,000 for each such exemption, provided
21 that no more than $40,000,000 shall be exempted under
22 each such exemption at any individual bank or nonbank de23 pository institution.".
44-240 0 - 79 - 7
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1
2
FORM OF RESERVES
SEC. 5. Section 19(c) of the Federal Reserve Act, as
3 amended (12 U.S.C. 461) is amended to read as follows:
4
"Reserves held by a depository institution to meet the
5 requirements imposed pursuant to subsection (b) of this sec6 tion shall be in the form of7
"(1) balances maintained for such purposes by
8
such depository institution in the Federal Reserve bank
9
of which it is a member or at which it maintains an
10
account. However, the Board may, by regulation or
11
order, permit depository institutions to maintain all or
12
a portion of their required reserves in the form of vault
13
cash: Provided, That such proportion shall be identical
14
for all depository institutions; and
15
"(2) balances maintained by a nonmember deposi-
16
tory institution in a bank that maintains required re-
17
serve balances at a Federal Reserve bank, in a Federal
18
home loan bank, or in a central liquidity facility for
19
credit unions: Provided, That such bank, Federal home
20
loan bank, or central liquidity facility maintains such
21
funds in the form of balances in a Federal Reserve
22
bank of which it is a member or at which it maintains
23
an account. Balances reeeived by a bank from another
24
depository institution that are used to satisfy the re-
25
serve requirement unposed on such dcpo.sitt:,>' institu-
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93
1
tion by this section shall not be subject to the reserve
2
requirements of this section imposed on such bank, and
3
shall not be subject to assessment imposed on such
4
bank, pursuant to section 7 of the Federal Deposit In-
5
surance Act.".
6
PRICING OF SERVICES
7
SEC. 6. The Federal Reserve Act is amended by insert-
s
ing after section 11 (12 U.S.C. 248) the following new sec-
9 tion:
10
"SEC. llA. Not later than July 1, 1979, the Board
11 shall publish for public comment a set of pricing principles
12 and a proposed schedule of fees for Federal Reserve System
13 services; and not later than July 1, 1980, the Board shall put
14 into effect a schedule of fees for such services based on those
15 principles. The principles published by the Board shall insure
16 that all depository institutions be able to purchase the serv17 ices provided by the Federal Reserve System on the same
18 terms and conditions. Such pricing principles shall take into
19 account the taxes that would be paid and the capital costs
20 that would be incurred if privately owned organizations pro21 vided similar services, and shall give due regard to competi22 tive factors and the provision of an adequate level of such
23 services nationwide.".
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1
2
COMMITTEE ON MONEY SUBSTITUTES
SEC. 7. (a) The Board of Governors of the Federal Re-
3 serve System (hereinafter referred to as the "Board") shall
4 establish a committee on reserve requirements for money
5 substitutes, including bank and nonbank liabilities that are
6 substitutes for demand deposits.
7
(b) The committee shall be composed of five members
8 appointed by the Board. In making appointments to the com9 mittee, the Board shall select individuals with broad back10 grounds in monetary affairs, economic policy, or finance and
11 who are not employed by the United States Government or
12 employees, officers, or directors of a Federal Reserve bank.
13
(c) The committee shall conduct a thorough study and
14 investigation of the need for legal reserve requirements
15 against short-term liabilities of bank and nonbank depository
16 institutions, and other financial institutions offering short17 term money substitutes, and recommend appropriate adminis18 trative actions and legislation. Among other things the oom19 mittee shall be directed to examine20
(1) the need for reserve requirements against
21
short-term money substitutes such as nonbank "Fed-
22
eral funds", security repurchase agreements, Eurodol-
23
lars, security dealer repurchase agreements, liquid
24
asset mutual funds, cash management services, and
25
travelers checks;
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1
(2) the appropriate level of reserve requirements
2
against each type of short-term money substitutes; and
3
(3) the need for the Federal Reserve Board to
4
have flexibility to change reserve requirements against
5
such money substitutes in order to execute monetary
6
policy.
7
8
AUTHORITY OF STATE BANK SUPERVISORS
SEC. 8. Nothing in this Act or in the amendments made
9 by this Act shall be construed in derogation of the authority
10 of any officer or agency of State over any institution orga11 nized or existing under the laws of such State.
12
13
EFFECTIVE DATES
SEC. 9. This Act shall take effect on the date of enact-
14 ment, except that the amendments made by sections 4 and 5
15 of this Act shall take effect on the first day of the sixth calen16 dar month which begins after the date of enactment of this
17 Act.
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Federal Reserve Bank of St. Louis
97
96TH
CONGRESS
1ST SESSION
s 353
e
To facilitate the development and implementation of monetary policy; to reduce
and restructure reserve requirements; and to provide for the maintenance of
reserves by member banks and other depository institutions in Earnings
Participation Accounts at the Federal Reserve banks.
IN THE SENATE OF THE UNITED STATES
FEBRUABY 6 (legislative day, JANUABY 15), 1979
Mr. TOWER introduced the following bill; which was read twice and referred to
the Committee on Banking, Housing and Urban Affairs
A BILL
To facilitate the development and implementation of monetary
policy; to reduce and restructure reserve requirements; and
to provide for the maintenance of reserves by member banks
and other depository institutions in Earnings Participation
Accounts at the Federal Reserve banks.
1
Be it enacted by the Senate and House of Representa-
2 tives of the United States of America in Congress assembled,
3
SECTION 1. This Act may be cited as the "Federal Re-
4 serve Modernization Act of 1979".
5
SEC. 2. Section ll(a) of the Federal Reserve Act (12
6 U.S.C. 248(a)) is amended (1) by inserting "(1)" immediately
II-E
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1 after "(a)", and (2) by adding at the end thereof the following
2 new paragraph:
3
"(2) To require any depository institution specified in
4 this paragraph to make, at such intervals as the Board may
5 prescribe, such reports of its liabilities and assets as the
6 Board may determine to be necessary to enable the Board to
7 discharge its responsibility to monitor and control monetary
8 and credit aggregates. Such reports shall be made (A) direct.9 ly to the Board in the case of member banks and in the case
10 of other depository institutions which maintain reserves pur11 suant to section 19 of this Act and (B) to the Board through
12 the (i) Federal Deposit Insurance Corporation in the case of
13 insured State nonmember banks, (ii) National Credit Union
14 Administration in the case of insured credit unions, (iii) Fed15 era! Home Loan Bank Board in the case of any institution
16 insured by the Federal Savings and Loan Insurance Corporal 7 tion or which is a member as defined in section 2 of the
18 Federal Home Loan Bank Act, and (iv) such State officer or
19 agency as the Board may designate in the case of any other
·20 type of bank, savings and loan association, or credit union.
21 The Board shall endeavor to avoid unnecessary burdens on
22 reporting institutions and, insofar as possible, use reports re23 quired by the Federal agencies mentioned above or the ap24 propriate State bank supervisory authority, and' any data
25 therefrom shall be made readily available to the Board. The
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1 Board may classify depository institutions for the purposes of
2 this paragraph, and may impose different requirements on
3 each such class.".
4
SEC. 3. (a) The last sentence of subsection (b) of section
5 19 of the Federal Reserve Act (12 U.S.C. 461) is designated
6 as paragraph (7) and that part of subsection (b) that precedes
7 that sentence is amended to read as follows:
8
"(b)(l) Every member bank shall maintain reserves
9 against its demand deposits in such ratio, not less than 3 per
10 centum nor more than 10 per centum, as shall be determined
11 by the Board.
12
"(2) Every member bank shall maintain reserves against
13 its time deposits of less than one hundred and eighty days in
14 maturity and savings deposits in such ratio, not less than 1
15 per centum nor more than 7 per centum, as shall be deter16 mined by the Board.
17
"(3) Member banks shall not be required to maintain
18 reserves against time deposits with initial maturities of one
19 hundred and eighty days or more.
20
"(4) In setting the reserve ratios under paragraphs (1)
21 through (2) of this subsection, the Board shall establish uni22 form ratios applicable to all member banks.
23
"(5) Any nonmember depository institution may main-
24 tain reserves at a Federal Reserve bank: Provided, That such
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1 institution complies with the same reserve standards applica2 ble to member banks under this section.
3
"(6) Except as provided in paragraph 3 of section 13 of
4 the Federal Reserve Act; any nonmember depository institu5 tion not maintaining reserves in accordance with this section
6 shall not be eligible to receive Federal Reserve bank serv7 ices: Provided, however, That this prohibition does not re8 strict a nonmember depository institution from receiving indi-
9 rectly the benefits of such services through the maintenance
10 of a correspondent or similar relationship with a member
11 bank.".
12
(b) Section 19(c) of the Federal Reserve Act (12 U.S.C.
13 461) is amended to read as follows:
14
"(c) Reserves held by any member bank to meet the
15 requirements imposed pursuant to subsection (b) of this sec16 tion or by any nonmember depository institution voluntarily
17 complying with such reserve standards shall be in the form
18 of19
20
21
22
"(1) balances maintained for such purpose by such
institution at a Federal Reserve bank, and
"(2)
the
currency
and
coin held by
such
institution.
23 A member bank or a nonmember depository institution com24 plying with this section may" maintain an amount equal to its
25 total reserves determined under paragraphs (1) and (2) of
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1 subsection (b), less its vault cash, in an Earnings Participa2 tion Account at a Federal Reserve bank. The Earnings Par3 ticipation Account of a depository institution shall earn inter4 est at a rate one-half per centum below the average rate
5 earned on the securities portfolio of the Federal Reserve
6 System during the calendar quarter immediately preceding
7 the interest payment date. The Board is authorized to adopt
8 rules and regulations relating to the maintenance and admin9 istration of Earnings Participation Accounts.".
10
SEC. 4. The Federal Reserve Board shall implement the
11 reserve requirements imposed by section 2 and establish
12 Earnings Participation Accounts provided for in that section
13 in an orderly transition period, within four years after the
14 effective date of this Act.
15
SEC. 5. This Act shall become effective ninety days
16 after enactment.
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102
For release on delivery
Expected at 10 a,m. E,S,T.
February 26, 1979
Proposals to Facilitate the Implementation
of Monetary Policy and to Promote Competitive
Equality Among Depository Institutions
Statement by
G. William Miller
Chairman, Board of Governors of the Federal Reserve System
before ·the
Committee on Banking, Housing and Urban Affairs
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Federal Reserve Bank of St. Louis
United States Senate
February 26, 1979
103
Mr. Chairman, members of the Committee, the nation's
financial system has been undergoing rapid change in recent years,
altering the competitive environment in banking and other financial
markets and complicating the Federal Reserve's ability to implement
monetary policy.
These developments are well known to the Committee.
Nonmember depository institutions have been growing much more rapidly
than member banks.
Transactions-type deposit accounts have become more
widespread at thrift institutions.
And, in general, competition among
depository institutions and between those institutions and the open
market has become much more intense.
Increased competition enhances the efficiency of the financial
system.
But, as a result, banks have been re-assessing their costs
and many have become less willing to bear the high cost of cash
reserve requirements associated with being a member of the Federal
Reserve System.
Thus, there has been a steady--and in recent
years accelerating--decline in the proportion of bank deposits,
especially transaction deposits, subject to Federal reserve requirements.
Moreover, the continued development of new transactions-type
deposits at nonbank depository institutions will further worsen this
situation.
IEVELOPMENTS WEAKEN MONETARY CONTROL
It is essential that the Federal Reserve maintain adequate
control over the monetary aggregates if the nation is'to succeed
in its efforts to curb inflation, sustain economic growth, and
maintain the value of the dollar in international exchange markets.
The attrition in deposits subject to reserve requirements set by the
Federal Reserve weakens the linkage between member bank reserves and
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Federal Reserve Bank of St. Louis
104
the monetary aggregates.
As a larger and larger fraction of
deposits at banks becomes subject to the diverse reserve requirements
set by the 50 states rather than by the Federal Reserve, and as more
transactions balances reside at thrift institutions, the relationship
between the money supply and reserves controlled by the Federal Reserve
will become less and less predictable, and the instruments of monetary
policy will become less precise in their application.
Our staff has attempted to assess the extent to which growth
of deposits outside the Federal Reserve System would weaken the
relationship between·reserves and money.
Their tentative results
are shown in Chart I, which depicts the greater range of short-run
variability in M-1 and M-2, with a given level of bank reserves,
that would develop as the per cent of deposits held outside the Federal
Reserve rises.
As more and more deposits are held outside the System,
this chart suggests that control of money through the reserve base
becomes increasingly uncertain.
USE OF RESERVE REQUIREMENTS HAS BEEN RESTRICTED
With the proportion of banks subject to Federal reserve
requirements declining, the ability of the central bank to use changes
in reserve requirements as a tool of monetary policy has been increasingly undermined.
Changes in reserve ratios not only affect a smaller
proportion of deposits today than in the past, but the Board also
must weigh the potential impact of its actions on the membership
problem--end hence on its ability to maintain monetary control over
the longer run-~ach time it deliberates on the uses of this tool. Such
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Federal Reserve Bank of St. Louis
105
concerns inhibit the Board's freedom of action to conduct monetary
policy.
If reserve requirements were applied universally, as is
proposed in S.85, adjustments in reserve ratios to affect the
availability of credit throughout the country, or to influence
banks' efforts concerning particular types of deposits, may again
become a more viable monetary instrument.
Moreover, while open market
operations in U.S. Government securities currently provide the Federal
Reserve with a powerful policy instrument, it is possible that
conditions could develop in the future--such as a less active market
for U.S. Government securities in a period of reduced Federal
budgetary deficits--where more flexible adjustment of reserve requirements might become more necessary to control the 1l)Onetary
aggregates •
• • • AS HAS BEEN THE DISCOUNT WINDOW
The effectiveness of the Federal Reserve's administration
of the discount window also has been potentially compromised by
recent developments.
Membership attrition and the growth of trans-
actions balances at nonbank depository institutions have resulted
in a shrinking proportion of the financial system having immediate
access to the discount window on a day-to-day basis.
The discount window, as the "lender of last resort," provides
the payments system with a basic liquidity backup by assuring member
banks the funds to meet their obligations.
But, if the proportion
of institutions having access to this facility continues to decline,
individual institutions could be forced to make abrupt adjustments
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Federal Reserve Bank of St. Louis
106
in their lending or portfolio policies, because they could not turn
to the window to cushion temporarily the impacts of restrictive
monetary policies.
Risks that liquidity squeezes would result in bank
failures could also increase.
Thus, the Federal Reserve may find
that its ability to limit growth in money and credit in order to
curb inflation was being unduly impeded.because the safety valve
provided by the discount window was gradually losing its effective
coverage •
• • • AND THE PAYMENTS SYSTEM FACES DETERIORATION
The growth of transactions balances at institutions that
do not have access to Federal Reserve clearing services also could
lead to a deterioration of the quality of the nation's payments
system.
Reserve balances held at Federal Reserve Banks are the
foundation of the payments mechanism, because these balances are
used for making payments and settling accounts between banks.
Nonmember deposits at correspondent banks can serve the same purpose,
but as more and more of the deposits used for settlement purposes
are held outside the Federal Reserve, the banking system becomes more
exposed to the risk that such funds might be immobilized if a large
correspondent bank outside the Federal Reserve experienced substantial
operating difficulties or liquidity problems.
A liquidity crisis
affecting such a large clearing bank could have widespread damaging
effects on the banking system as a whole because smaller banks might
become unable to use their clearing balances in the ordinary course
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Federal Reserve Bank of St. Louis
107
of business.
The Federal Reserve, of course, is not subject to
liquidity risk and therefore serves, as Congress intended, as a
safe foundation for the payments mechanism.
In sum, the major functions of the Federal Reserve System-to conduct monetary policy in the public interest, to provide backup
liquidity and flexibility to the financial system, and to assure a
safe and efficient payments mechanism--all have been undermined by
recent developments.
These developments include, as was noted
earlier, attrition in Federal Reserve membership and the spreading of
third-party payment powers to nonbank institutions.
DECLINE IN SYSTEM MEMBERSHIP
For more than 25 years there has been a continual decline
in the proportion of commercial banks belonging to the Federal Reserve.
The downward trend in the number of member banks has been accompanied
by a decline in the proportion of bank deposits subject to Federal
reserve requirements, as may be seen from Chart II.
As of
mid-1978, member banks held less than 72 per cent of total commercial
bank deposits, down about 9 percentage points since 1970.
Thus,
more than one-fourth of commercial bank depo'sits--and over threefifths of all banks--are outside the Federal Reserve System.
DUE TO THE EXCESSIVE COST OF MEMBERSHIP
The basic reason for the decline in membership is the financial
burden that membership entails.
Most nonmember banks and thrift
institutions may hold their required reserves in the form of earning
44-240 0 - 79 - 8
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Federal Reserve Bank of St. Louis
108
assets or in the form of deposits (such as correspondent balances)
that would be held in the normal course of business. Member banks,
by contrast, must keep their required reserves entirely in nonearning form.
The cost burden of Federal Reserve membership thus consists
of the earnings that member banks forego because of the extra amount
of non-earning assets that they are required to hold.
Of course,
member banks are provided with services by Reserve Banks, but the
value of these services is insufficient to close the earnings gap
between member and nonmember banks.
The Board staff estimates that the aggregate cost burden
to member banks of Federal Reserve membership exceeds $650 million
annually, based on data for 1977, or about 9 per cent of member bank
profits before income tax.
The burden of membership is not distributed
equally across all sizes of member banks.
According to staff estimates,
shown in the lower panel of Chart III, the relative burden is greatest
for small banks--exceeding 20 per cent of profits for banks with less
than $10 million in deposits.
Further reductions of reserve require-
ments within existing statutory limits would do little to eliminate
the burden for most classes of banks, especially for the smaller banks.
INEQUITY OF COST BURDEN BORNE BY MEMBER BANKS
The current regulatory structure is arbitrary and unfair
because it forces member banks to bear the full burden of reserve
requirements.
Only member banks must maintain sterile reserve
balances, while nonmember banks, which compete with members in the
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Federal Reserve Bank of St. Louis
109
same markets for loans and deposits, and thrift institutions, which
increasingly are competing in the same markets, do not face similar
requirements.
Thus, members are at a competitive disadvantage
relative to other depository institutions.
Among the major countries
in the free world, only in the United States has this legislated
inequity been imposed on the commercial banking system.
It is no
wonder that member banks continue to withdraw from the Federal
Reserve.
SPREAD OF THIRD-PARTY PAYMENT POWERS
At the same time, the spread of third-party powers to thrift
institutions is further increasing the proportion of transactions
balances outside the control of the Federal Reserve.
Commercial
banks' virtual monopoly on transactions accounts, maintained in the
/
past because of their ability to offer demand deposits, is being
eroded.
Moreover, recent financial innovations have led to widespread
use of interest-bearing transactions accounts at both nonbank
depository insitutions and commercial banks. These developments have
increased both the costs and competitive pressures on banks, no doubt
compelling members to reevaluate the costs and benefits of membership and thus playing a significant role in membership withdrawals.
The payments innovations since 1970 have received widespread
attention, and include limited pre-authorized "bill-payer" transfers
as well as telephone transfers from savings accounts at banks and
savings and loan associtions, NOW accounts at practically all
depository institutions in New England, credit union share drafts,
automatic transfers from savings deposits, and the use of electronic
terminals to make immediate transfers to and from savings accounts.
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Federal Reserve Bank of St. Louis
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Growth of these transactions-related interest-bearing
deposits has been most dramatic in recent years.
For example, NOW
accounts in New England have grown from practically zero in 1974 to 8
per cent of the region's household deposit balances in mid-1978, as shown in
Chart IV, and one-third of these NOW deposits are at thrift institutions.
The intense competition engendered by the introduction of NOW accounts
has been accompanied by an acceleration of member bank attrition in
New England to a rate well beyond that of the nation, as shown in
Chart V.
This increase in member bank withdrawals is clearly not
just coincidental.
There is no sign that the intense competition will abate.
As shown in Chart VI, savings accounts authorized for automatic
transfer have grown rapidly at commercial banks across the country
since their introduction November 1; and in New York, NOW accounts,
which were authorized November 10 for all depository institutions
in the State, have been increasing vigorously.
In addition, the
Federal Home Loan Bank Board has announced its intention to authorize
savings and loan associations to offer Payment Order Accounts, or
POAs, which are interest-bearing deposits that can serve many of the
same functions as NOWs.
These developments have caused the distinctions among banks
and thrifts with respect to the "moneyness" of their deposits to
become increasingly blurred and have prompted the Federal Reserve
to reevaluate its existing measures of the monetary aggregates and
to propose redefinitions to reflect the changing institutional
environment.
The most basic measure of transactions balances,
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Federal Reserve Bank of St. Louis
111
M-1, clearly should include more than just currency and commercial
bank demand deposits.
And, the broader aggregates should be
redefined to emphasize distinctions by type or function of deposit
rather than by the institution in which the deposit is held.
Changing
the money measures to reflect economic reality, including the wider
role played by depository institutions other than member banks in the
monetary system, would be complemented by legislation for universal
reserve requirements.
LEGISLATIVE PROPOSALS POINT IN THE RIGHT DIRECTION
The Board appreciates the priority attention given by the
Committee to the important issues of improving monetary control and
reducing the inequities in markets in which depository institutions
are competing.
The legislative proposals set furth by Chairman Proxmire
and Senator Tower represent constructive approaches.
As was indicated
in the last session of Congress, the Board prefers the universal approach
of s.85.
This bill proposes universal Federal reserve requirements by
establishing reserve ratios applicable to all deposits at commercial
banks and to transactions balances at thrift institutions.
The defini-
tion of transactions accounts includes not only demand deposits, but
also the growing number of new third-party payments accounts.
Such an
approach puts all depository institutions of similar size on an equal
competitive basis in the market for transactions deposits.
The exemption
from any reserve requirement of the first $40 million of transaction
balances at all institutions and the first $40 million of other deposits
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Federal Reserve Bank of St. Louis
112
at commercial banks would eliminate the competitive burden of reserve
requirements on small institutions while increasing slightly from present levels the proportion
of commercial bank deposits subject to
Federal r~serverequirements.
This approach helps assure the continua-
tion of the reserve structure needed for the efficient conduct of
monetary policy.
Under this legislation thrift institutions with reservable
transactions accounts and all commercial banks would have access
to the Federal Reserve discount window.
The Federal Reserve could
then act as a "lender of last resort" to a broader class of
depository institutions and thereby enhance the overall safety and
soundness of the depository system, as well as providing more flexibility to financial institutions to respond to changing monetary
policy.
The bill also gives all depository institutions access
to other Federal Reserve services.
With the application of an appro-
priate price schedule for such services, this action would improve
the efficiency of the payments mechanism which underlies all of the
nation's ecnomic transactions.
But it should be emphssized that open access to System services,
desirable as it may be, is only practicable if the membership problem
is resolved, as S.85 does in principle.
Without resolution of the
membership problem, open access for all institutions at explicit prices
would only exacerbate the problem and lead to even greater reduction
in the Federal Reserve's deposit coverage, since services would be
available to nonmembers that would not bear the burden of sterile reserves.
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Federal Reserve Bank of St. Louis
113
Thus, as Senator Tower has recognized in his bill, a voluntary approach
to solving the membership problem must make it clear that the Federal
Reserve has the authority to continue to restrict access to System services.
BUT CERTAIN MODIFICATIONS OF S.85 ARE DESIRABLE
The various features of S.85 redress much of the growing
competitive inequity among financial institutions and provide a
framework for enhancing the implementation of monetary policy.
However, we believe that certain modifications are desirable in
order to exploit mor~ fully the potential for improved monetary
control offered by this approach and to strike a better balance
among the legitimate concerns and interests of the various consitituencies affected by this legislative compromise.
First, while the $40 million exemptions in this legislation would mean that the proportion of deposits subject to direct
Federal Reserve control would increase slightly from current levels,
we feel that there are important benefits for monetary control
in increasing that coverage even further.
The Board has a proposal
which will provide additional coverage, and hence further enhance
monetary control, while at the same time preserving for all depository
institutions the earnings protection contained in S.85.
PARTICIPATION IN FEDERAL RESERVE EARNINGS FOR EXEMPTED DEPOSITS
The Board's proposed modification involves establishment
of an "Earnings Participation Account" which would result in more
institutions maintaining balances at the Federal Reserve; however,
their earnings capacity would be protected because the Earnings
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Federal Reserve Bank of St. Louis
114
Participation Account would accrue inferest at the rate earned by the
Federal Reserve on its portfolio of securities.
To reduce the
record-keeping burden, small institutions could be excluded from
having to hold this account.
This exclusion could amount to the first
$10 million of transactions deposits at_each institution and $10 million of other deposits at each connnercial bank.
For banks, with respect to all deposits, and for other
depository institutions, with respect to transactions deposits, their
Earnings Participation Account would be held against deposits above
the $10 million exclusion and up to the amount of the exemption level,
which would be $40 million in the case of S.85.
The size of this
Earnings Participation Account for each deposit category would equal
the reserve ratio applicable to deposits in this category times the
amount of deposit liabilities between $10 million and the exemption
level.
To the extent that an institution holds vault cash in excess
of its required reserves on nonexempt deposits, the size of the Earnings Participation Account would be reduced correspondingly.
The return on this account would be equivalent to the
average return on the Federal Reserve's portfolio, which includes
both short- and long-term securities.
Some years this return might
be higher than banks would earn on other assets--which are likely
to be a combination of loans and liquid instruments--and some years
less.
On average, over time, there should be little difference.
It should be noted that Senator Tower's S.353 does provide
for establishment of an Earnings Participation Account.
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Federal Reserve Bank of St. Louis
However, the
115
estimated cost to the Treasury of tsis bill is considerably greater
tban other proposals being considered.
YIELDS EXPANDED COVERAGE, MORE EARNINGS PROTECTION
Chart VII compares the impacts of the Board's proposal
with S.85 and with the current reserve system.
As can be seen
in the upper left-hand panel, the Board''s modification has
the advantage of increasing the proportion of commercial bank
transactions deposits covered by an account at the Federal Reserve-from the present 73 per cent, and about 75 per cent under S.85, to
94 per cent.
This would be accomplished even though the $10
million exclusion would mean that 45 per cent of all commercial
banks, as well as virtually all thrifts, would not be required
to hold any account at the Federal Reserve.
It is worth emphasizing that now is the appropriate
time to bring transactions-type deposits at thrifts under reserve
requirements.
It will be several years, at least, before any
significant number of thrift institutions would actually have to
hold non-earning reserves at the Fed.
Currently, less than a
dozen thrift institutions have deposits in excess of the $40 million
exemption of S.85, and all have vault cash considerably greater than
the reserve requirement that would apply to such deposits.
RESERVE REQUIREMENTS
While the Board does not strongly object to the particular
reserve requirement ratios specified in S.85, it would, assuming the
other elements of the proposal are adopted, prefer somewhat lower
ratios, on average.
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Federal Reserve Bank of St. Louis
Lower average reserve requirements on demand
116
and time and savings deposits at commercial banks would provide for
more equitable treatment, as thrift institutions
are not subject
to any reserve requirements on non-transactions deposits under the
proposed bill.
The exact set of reserve ratios that would balance equity
considerations against the loss of Treasury revenue and the need for
flexible and effective instruments of monetary policy is, of course,
a matter of judgment.
There is much to be said for complete equality
of treatment between banks and thrift institutions with respect to
reserve requirements.
This approach would argue, on the one hand,
for reducing further the reserve requirements on all non-transactions
time and savings deposits at connnercial banks, even to zero.
But
such reductions would be very costly to the Treasury and would also
eliminate reserve requirements on time deposits as a policy instrument; the flexibility to vary those requirements has proven
useful in the past as a means of influencing banks' liability management and international flows of funds.
Complete equality of treatment could also be obtained, on
the other hand, by imposing reserve requirements on thrifts' time
and savings deposits that are the same as those borne by banks.
But
this has the disadvantage of being very costly to thrift institutions,
who are, in any event, coming under earnings pressure in the current
period of relatively high short-term interest rates.
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Federal Reserve Bank of St. Louis
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Thus, the Board believes that the reserve requirement structure suggested in the House bill proposed by Representative Reuss (H,R,7)
may be a reasonable compromise,
The Board also
would not oppose an
increase in the exemption level to the $50 million in H,R.7, as long as
the modified bill included the establishment of an Earnings Participation
Account.
With lower reserve requirements and a higher exemption level,
more connnercial banks would effectively be on the same footing as the
thrift institutions with which they compete, in the sense that neither
would be forced to hold non-interest earning reserves against their
deposits,
As shown in the right-hand upper panel of the chart, the number
of banks holding sterile reserve balances at Federal Reserve Banks would be
sharply reduced from the current level of 5,664 to an estimated 656 under
the Board modification.
This number is somewhat lower than the estimated
796 banks which would be required to hold nonearning reserves at Federal
Reserve Banks under S,85.
The reserve requirement structures of S.85 and H.R.7 are:
DeEosit
CatesorI
Transactions deposits
Reserve Ranses {Eer cent)
s.85
H.R.7
12 to 14 (13 initially)
8 to 10 (9.5 initially)
Short-term time deposits
4 to
8
6 initially)
3 to
8
8 initially)
Savings deposits
1 to
5 ( J initially)
1 to
3 (
3 initially)
Long-term time deposits
½ to 2
1 to
3
1 initially)
( l initially)
The Board believes that it is particularly important to have a somewhat
lower reserve requirement on transactions deposits than under s.85 so
as to minimize the incentive for institutions to develop
roundabout methods for avoiding the requirement and thereby add to the
complexity of administering the reserve structure.
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Federal Reserve Bank of St. Louis
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EFFECT ON DEPOSIT COVERAGE AND BANK EARNINGS
The bottom panel shows that the Board's modified version of
S.85 would provide a greater earnings benefit to the banking system
than S.85.
Attachment A presents a
listing of individual member and
nonmember commercial banks and MSB's which would be subject to Federal
reserve requirements or would be required to hold an Earnings Participation
Account under S.85 as modified by our proposal.
This listing is similar
to that shown on pages 11 to 183 of the Counnittee print, Suunnary of the
Monetary Policy Improvement Act of 1979, which showed the banks covered
under S,85.
An asterisk in the far right column indicates that it is
a bank added to the list by the Board's proposal--that is, it has deposits
above the excluded level but below the exemption level of S.85.
These added
banks would hold an Earnings Participation Account at the Federal Reserve
and thus expand the Federal Reserve 1 s coverage of deposits, but they
would not hold any nonearning required reserve balance at Reserve Banks
because their deposits are below the exempted level.
asterisk were on the Counnittee list before.
Banks without an
Column 4--entitled EPA--shows
the amount of the Earnings Participation Account each institution would
hold.
If this colunm is zero, the bank at the end of 1977 had sufficient
vault cash in excess of its required reserves that it would have had no
Earning Participation Account.
The additional institutions holding accounts at the Federal
Reserve would keep the earnings benefit of the exemption level proposed
by s.85, since they would participate in the Federal Reserve's earnings
on funds that they would be required to maintain in the Earnings
Participation Account.
Moreover, the combination of the higher
exemptions and the different structure of reserve ratios in the modified
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Federal Reserve Bank of St. Louis
119
bill means
that any institution required to hold sterile reserves
would have its burden reduced relative to that of S.85.
This structure
enhances the earnings capacity of all institutions and minimizes the
competitive burden on individual institutions.
In sum, the Board proposal would have the clear advantage of
expanding significantly the coverage subject to reserve requirements,
thereby enhancing the implementation of monetary policy.
At the same
time, it would increase the earnings benefit for depository institutions
over those provided in S.85 at a modest additional cost to the Treasury.
Finally, exclusion of the first $10 million of transactions-type
deposits and $10 million of other deposits. from any reserve requirement
would reduce the record-keeping burden of the proposal, with relatively
small policy impact.
TREASURY REVENUES
Based on the 1977 level of deposits, and assuming all the
provisions of the bill had been in effect for some time, it is
estimated that the provisionsof S.85 themselves would reduce Treasury
revenues by about $60 million.
This estimate allows for recapture by
the Treasury through tax payments by banks and stockholders of a portion
of the earnings benefits accruing to banks.
The Board's modification would have a somewhat larger impact
on Treasury revenues than S. 85 but still keeps the cost within reasonable bounds.
It is estimated that the net cost to the Treasury would be
about $173 million.
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Federal Reserve Bank of St. Louis
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It must be stressed, however, that in the absence of legislation to stop membPrship attrition, the Federal Reserve will lose
increasing amounts of revenue over time as member banks leave the
System.
Thus, after making allowance for the loss of Federal Reserve
revenues fro~ continued attrition that would otherwise be occurring,
these proposals would result in little, if any, net cost to the Treasury
in the future.
Moreover, in the first three years after the program is
implemented the Treasury will not incur any loss in revenue because the
Federal Reserve intends to transfer a sufficient portion of its earned
surplus to maintain net Treasury revenues during this period.
Attachment B provides language for a series of amendments
to S.85 that would implement the various aspects of the Board's proposed
modification.
ADDITIONAL MODIFICATIONS
Another modification proposed by the Board concerns the
pricing of Federal Reserve System services.
The System has already
expended considerable effort in formulating pricing principles and
in developing pricing alternatives for the services we provide.
A
preliminary schedule of prices for check and automated clearing
house
services was announced last November.
Price schedules for
other Federal Reserve services, such as coin and currency services,
wire transfers and the safekeeping of securities, are under consideration.
rapidly as
Although we intend to implement service charges as
we
can after the membership problem is solved, we believe
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Federal Reserve Bank of St. Louis
121
that the July 1, 1980 implementation_date set in S.85 may not afford
sufficient flexibility to develop a well designed system.
An
amend-
ment which would eliminate the fixed date and thus provide the necessary
flexibility is presented in Attachment C.
Additional more technical
amendments to clarify reporting requirements, access to the discount
window, and the application of reserve requirements to foreign obligations of banks, and to conform other provisions of the Federal Reserve
Act, also are attached for the Committee's consideration.
Mr. Chairman, thank you for the opportunity to present the
Federal Reserve 1 s view on the Monetary Policy Improvement Act of 1979,
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Chart I
Effect of Member Bank Attrition On Short-Run Predlctablllty of Monetary Aggregates
Absolute Range of Unpredictable Varlablllty In T-•monlh Growth Rates
Percentage poln!s
20
15
10
5
0
0
20
40
Per cent of Bank Deposits Not Subject to Reserve Requirements
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Federal Reserve Bank of St. Louis
60
80
100
123
Chart JI
Percentage of U.S. Commercial Banks and
Deposits In the Federal Reserve System
Par cant
90
80
70
60.
50
40
0
19fl1
44-240 0 - 79 - 9
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1965
1969
1973
1977
124
Chartm
Estimated Burden of Federal Reserve Membership
-
AGGREGATE BURDEN, 1977
MIiiions of dollars
300
-
......
1 - 200
......
,_
1 - 100
-
,_
rmmn I
I
I
I
I
AGGREGATE BURDEN AS PERCENT OF
ESTIMATED 1977 DOMESTIC PRE-TAX EARNINGS
0
-
-
......
---
-
20
......
-·
10
Per cent
30
--
1-
I
0-10
I
10-50
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Federal Reserve Bank of St. Louis
I
I
50-100
100-500
I
500-1000
Bank size class(total deposits, millions of dollars)
0
Over 1000
125
Chart DZ
NOW Accounts as Percentage of
Household Deposit Balances In New England
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8
8
4
2
126
Chart'.lt
Percentage of New England Commerclal Banks and
Deposits In the Federal Reserve System
Per cent
90
45
1961
1963
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Federal Reserve Bank of St. Louis
1965
1967
1969
1971
1973
1975
1977
0
127
Chwt:lll
Rapid Growth of ATS Accounts Nationwide
and NOW Accounts In New York Slate
Billions of dollars
8
TOTAL
5
NOWs
ATS
4
3
2
.__..__ _.__....__ _.__.....,_ _._..,....'--_.___..__ _.__....__......_ _.__.....,_ __._ __,o
8
*
15
22
November
29
8
13
20
December
NOW account authorization not effective until November 10.
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Federal Reserve Bank of St. Louis
27
3
10
17
24
January
31
7
14
February
128
Chart ml
Effects of Proposals on Cornmerclal Banks
~sactions deposits covered
Per cent
Banks holding non-earning
reserve balances at F.R. Banks
-100
Per cent
100
80
80
80
80
-
-
40
-
20
5664
40
20
0
0
Current
S.85
Modified S.85
Current
Earnings gain from net
reduction in non-earning
balances
Billions of dollars
Revenue from Earnings
Pattk:lpatlon ·Account
800
600
400
200
0
S.85
Baffd on December 1877 dePQM•.
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Modified S.85
129
ATTACHMENT A
BENEFIT TO BANKS CoVERED BY MODIFIED
S. 85
Key to column headings
(1) TDEP-Total domestic deposits as of the end of 1977.
(2) VLTCSH-Vault cash as of the end of 1977.
(3) 1977 REQBAL-Estimated Amount of reserve balances as of the end of 1977
required by current law to be held at Federal Reserve Banks (i.e., required reserves
minus vault cash).
(4) NEW EPA-Amount that would have held in Earnings Participation Account
at the end of 1977 under modified S. 85.
(5) NEW REQBAL-New required reserves minus vault cash that would have
been held at the F.R. Banks under modified S. 85.
(6) DIF-Reduction in non-earnings required reserve balances at Federal Reserve
Banks that would have been held under modified S. 85. A negative amount represents an increase. ·
(7) • A bank covered by modified S. 85 but not by S. 85.
Examples for member banks
(A) The table shows that the first bank listed, Albertsville National Bank, had
deposits of $21,933,000 in December 1977. Vault cash amounted to $366,000, and
required non-earning balances at the Federal Reserve were $641,000.
Under modified S. 85, this bank, as of the end of 1977, would not have had to hold
any non-interest earning balances at the Federal Reserve because neither its transactions-type deposits nor the sum of its other deposits was greater than $50 million.
Albertsville National therefore would have saved the $641,000 it held in noninterest bearing reserve balances at the Federal Reserve at the end of 1977.
Since its vault cash is in excess of required reserves (which would be zero), all
vault cash would have been counted to reduce the Earnings Participation Account.
The Earnings Participation Account thus would have been zero because its vault
cash was greater than the reserve ratios times the non-excluded deposits (deposits in
excess of $10 million per account category.
(B) As of December 1977, Birmingham Trust National Bank had domestic deposits
of $828,915,000, vault cash of $6,100,000 and sterile balances at the Federal Reserve
Bank of $39,847,000. Because it had both transactions deposits and other deposits
well in excess of the $50,000,000 exemptions, Birmingham Trust, under modified S.
85, would have had to meet reserve requirements with all of its vault cash and
reserve balances of $27,342,000. The difference between the actual 1977 sterile
balances and those under modified S. 85 result in a savings of $12,505,000.
In this case, no vault cash would have been applied to reduce the Earnings
Participation Account because required reserves would have exceeded the bank's
holdings of vault cash. Thus, the Earnings Participation Account of Birmingham
Trust will equal the reserve ratio on transactions deposits (9.5 per cent) times $40
million plus the weighted reserve ratio on other deposits times $40 million, or
$5,162,000.
Examples for nonmember banks
(A) The first nonmember bank listed is The Bank of Abbeville, which had total
deposits, as of the end of 1977, of $23,421,000 and vault cash of $240,000. Under
existing law, no nonmember bank has any Federal reserve requirements. Under
modified S. 85, this bank would have continued to have no Federal reserve requirements because its transactions deposits and other deposits are well below the $50
million exemption level per account category.
Since vault cash of the Bank of Abbeville would have been in excess of required
reserves (which are zero), all vault cash would have been counted to reduce the
Earnings Participation Account. Thus, this bank would have had no Earnings
Participation Account because vault cash was greater than ·the reserve ratio times
the non-excluded deposits.
(B) Central Bank of Birmingham had total deposits of $510,662,000 in December
1977. Vault cash was $3,050,000, and it had no Federal reserve requirements. Under
the modified S. 85, required reserves would have been covered by its vault cash
holdings plus $17,509,000 in sterile reserve balances. This results in a net increase
in nonearnings reserve balances of $17,509,000.
In this case, no vault cash would have been applied to reduce the Earnings
Participation Account because required reserves would have exceeded the bank's
holdings of vault cash. Thus, the central Bank of Birmingham would have maintained, under modified S. 85, an Earnings Participation Account of 9.5 percent times
$40 million in transaction balances plus the weighted average reserve ratios on $40
million of other deposits, or $5,459,000.
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Federal Reserve Bank of St. Louis
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Federal Reserve Bank of St. Louis
lll
DSB
NAME
TDEP
LOLAllON
(21
VLTCSH
13l
l4l
(51
l6l
1977
NEW
NEW
OIF
________ R£'lbAL __ EPA_.P_f.-0'1AL .. 0 ) - ( 5 ~ - - -
6010020 ALBERTVILLE NATL BANK
6010040 FIRST NB OF ALEXAfl..OER CITY
ALBtRTVlLLE
ALEXANDER C.ITY
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Federal Reserve Bank of St. Louis
___ J1fP1f:IER BANKS
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BENE:flT .TO bANK!J_ COVE:.RE.D BY NODlFIE.D S .. B!>
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10400900 fAR>-1.:R.S NAT
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NAME
LOCATION
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6131710 tllllENS & SO BK OF HART C lYHAR TWELL
bl31800 C + S tsANK
JACi<..S.(l-.il
bl31820 JA!>n.R BANKING COMPANY
JASPER
___ bl31850 TRU::i.l CO tsK OF CLAYTON C.lY JLl<tt:.S.bORO _ _ _ _
ol3U:90 BANK. Of LA fAYtllE
LA FAYETTE
0131900 C £.. S. BANI(. Of WES.l G,toRGIA LA bRANG,E
6131915 PE:CJPU:S BANK Of LA GR ANGE
LA GH.ANbE
6131965 C.Wll'.NE:TT C.OMME:KC.lA.L BANK
LAWRt:NC.1:VlLLE
613,20<,0 G-tUkGU. S.lAH bAhlK
M.ABL l lUN
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01~2.115
6132lb0
b 132175
6132:178
613.:'.220
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6132250
613.t260
6132300
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bl3t350
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Ill
OSB
LOCATION
NAME
--
--------------------
6133075- SANK OF WORTH tOUNlY
SYLVtSTER
bl33080 SYLVESTER 8A.~1NG COMPAttY
SYL\ll:~Tt.R
6133125 bANK. Of UPSON
lHUHAS.lUN
bl33130 CTL C. SUTt,KN BIC. OF lHOMASTl.NThOHASTON
lt-LMASVILLE ______
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bl.33150 (UMMtP.C.lAL UANK
Tt<.tMA~VllLE
bl33lb0 BA.NK. OF THOMSON
lHOMSIJ'i
bl33lb0 C t. S. bAN.Jf.. Of- lHlON
1 !FTON
1 IFlUN
bl33lb5" Cl T lltNS bANi<. Of TH TON
Tlf-TCJN
bl33190 f-ARMtkS BAfllK. Uf- l IFTUN
_ 613.!210 bA.Nl'\ Uf- TCCCUA
TLCtO'··------6133215 Cl T llH~S. bAl'liJO. OF TOCCCIA
TOCCOA
bl33271J f-AkMl:kS tSA,N"'UNION POINT
VALLiOSTA.
bl3328~ Flk5T ~TAlE: bANK
WA..kNER ROBINS
b 133342 C. t s bANK OF MOUSTON CTY
bl33345 CITIZENS STA TE bANK
WARNEH RU81NS
_ bl3335~ I-ARMERS MD l"'J::.RC.HAl'HS BANK.
WASHlN&TUN
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WAYCROSS
MlNUER
b 133428 bANK UF- bARROW
OF
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GA
GA
GA
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BA.NI\ OF HA.WA.11
U:NTRAL PACIFIC BANK
CITY BANK
FIRST HAWAIIAN BANK
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b
18839
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HAVE NO EARNINGS PARTltlPAllON ACCOUNT OR RtQUJRtO RESERVE BALANc.E
l 7 __ HAVE NC, R,wuRED RtSt~VE BALANCE
--------------------------
--------------------12150020
_12150030
12150055
12150058
121500bS
12150090
121
lOEP VL ltSH
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NEW
N~W
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BANK.S AFFECTED Ht STAT.E
0
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---------------------__ l2lb0130 lNlE:.R H.OUN.TAlN STATE: ~ANK.
12lb0l43 BANK OF- (.QMMERC.E:.
12100300 FIR.ST l:IAN;K t. TRUST LO OF JO
12lb0350 JOA.HO BANK ANO 1RUS1 tO
CASCADE:
IUAHO FALLS
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Federal Reserve Bank of St. Louis
___ Jt('IIIMEMBER BANKS--·-----
8£:NE:FlT TO tiAN.K.S tOVE.RE:O 8Y M001Fl£:D Soi 8~ -··-
TOEP
LOCATION
---------
1Zlb03b5 VALLEY BA"'-K
12lb0Aiil0 FIRST BANr.. OF TROY
Of
Rl:XtWRG
b BANKS AFFECTED IN S.TATE
---···---·----
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7170t91
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ALSIP bANK
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BANII.. OF AL TUN
S.TAH. BANK OF ANNAWAN
STAT!:: ~ANK. UF ANTJUC.H
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,._,ORTH,.,E.Sl TR & SAVlNC.S BAkK.
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HU.ST co
STAH: HANK OF AUBURN:
flk!i.l Al"!EklC.AN bK. Of AUkORA
SARTLt.11 STAlE BANK
bATAVlA bA.NK.
F-IR~T 5,U.lE bAl'd;.
BAN"- UF bE:.Lll::Vlllt.
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bAN!\ OF l:H:LLWUOO
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bENTON C.UH--tUNll't BAf>.t\
BA"IIC. {Jf- CMMkC. IN BERKl:LE.Y
8L{J0MlNLIJ.\lt !>TATE: bANK
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1803
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Federal Reserve Bank of St. Louis
--NuNM.EMBE.R_ BANKS
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111
TOEP
LOC.ATION
NAME
12 l
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--------·---8171020 FIRST BANK ANO TRUST co
7171035 F-IRSl STATE 84N~
71710;]7 'U VlR OAKS HK t TR to
71710'",-5 CANTON STATE 8ANK
7171(198 C.UMM.Uf'tl TY BAM. AND lkUST C.0
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STATE: bANK OF-_INDIA ___ .
NEW YOR
SUM.lTOMA tlANK l 10
NEW YORK
SUMlTUM.0 TRUSl f. liKG CO LTD NEW YORK
~W l SS bANK CUK.PURAl lllN
NEW YIJRK
SWISS CkE:011 BANK
NEW VURK.
TAIYO K08f BANK. LTD
NEW YORK
TOKAI BANi.;,,_ LlMllf:.D
NE;W VURK
TOVU He.UST t BAf'-.iK.lNG CO LTD NC:W "ORK.
UNIO:i bANI\ OF 6A\IAR1 A
NcW ._,ORK
UNlliN BANK. OF SWITll:RLAND
NEW YlJRK
WE:STC;EUTSCHE LANC.ESbANK
NEW YORK.
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https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
--NONlkSURt:O BANKS
Ill
OSB
NAME
9380090 BANK Of NORTH DAKOlA
OF
lOEP
LOC.ATION
BISMARCK
l BANKS AFFECTED lN Sl ATE:
NO
0
0
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__________ 21,2119 ___ _
BENEfll 10 BANKS C.OVEREO bY HUlHt'lt.l> S. 85
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131
141
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l
hAVE. NO REQURE(J RESER.VI:: BALANCE
----- ----------------------------------__ l2'tl0501 BANK. OF TOKYO LTD
PlJRTLAND _
l2o!t-l0Sl0 CANADIAN IMPRL bK OF COMMRC.EPURlLANIJ
OF
2 BANKS AFFECTED IN S.TATE
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HAVE: NO RtQURED Ri;.~ERVf: BALAN(.E
----- . - - - ----------~ --------------------------=----3423825 BANK OF Ut,NOISBURG
3427218 TOBIAS KNU8LAUCH
- - - · - - - OF_
_
READllllG
2 BANKS AffECTE:O IN S.lATE
___1_44_0310_.WASHlNGlON.. TRUSL COMPANY_
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11025
143
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0
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https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
~
bf.Nl::Fll TU llANK.S COVl::REO bY MUOlFlC:U S. 8!>
NONlNSURCO bANK.S
OSB
1253U819 BANK OF TOK.YO LTD
Sl:ATTLE
12530820 CANAOlA.K lMPRL bK OF C.OHMRC.l:~EAllLE
OF
111
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LOUTION
N•ME
2: SANKS AFFEC.TEO lN ~lATE
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.. HAVE_ NO Rl::.QUkED.RE.~E:RVt. bALANCC.
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------------------------····
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https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
____H_Lll_UAL . .SAVlNGS BANKS
lll:.Nl::.F-11 TO bANKS C.UVEktD 6Y MUOlflCD S. 8~
( II
DS8
NAME
2090130 PEOPLE!) SAVINGS BANK
1090640 SOC.IE TV FOR SAVINGS
l0910b0 C.ONNl::CllCUT SAVINGS bANK
Tl.1EP
LDC.All ON
Cl
Cl
C1
liRlOGEPORT
HARlfURO
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HAVE NO kt:'-IURED Rt:.Sl::RVI:: BALANC.C
--------------------- ---------------------------------------_3...100400 WILMINGTON SVGS FUND SOC
Of
OE
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1 BANKS AFFE:CTED lfl.l STATE
l
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2:174
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HAVE: NO Rl:.QUREO Rl::ScRVE BALANCE
------------------5240220 PRCJVIOE:NT SAVINGS BANK
5240260 SAVlNbS. BANK Of BALllMUkC.
OF
bALTlMORE
BALTlMORE
2 BANKS AFFECTED IN STATE:
2
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-----------------------1250255 BOS. TGN FIVE CENlS SVGS BK
bOS lllN
bllS TON - - - - - - - - - - - -125(..3-00 CHARLESlOI-IN ~AV lN&S bANK
1250410 HOME SAVINGS BA/\iK
BOS TON
l 2~0520 PKUVlDl:"Nl lNSl l lUH'II FOR SVGSbOS lUN
bOS lON
1250570 SUFFGL~ F-fi.A.'iKl lN S.VGS i:IK
BGS TON
1250~b5 UNlLN ~ARREN SAVlNl,S bANK
1252'390 NE I~ bEOfUKO Fl VE: CNT SVG BK NEW BEDf-OR.O
l'tl:.WTON CE:NlcR
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12:52730 tH;RKSHlk.E COUNTY SAVINGS BK PllTSFHLO
1253150 SPRlNGfl C.l.0 INST fUR SVNGS SPRING.FIELD
wORCESltR
1253761 PEOPLE.S SAVINGS BANK
1253710 WCJRCESTER CTY INST r"L:k SVG~ WLRCt:~TER
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Federal Reserve Bank of St. Louis
HUTUAL SAVINGS BANKS
Bl.:.NEFIT 10 bANKS CUVl.:.RED DY HUDIFJE.., !:.. 85
( ll
DSB
NAME
2341550
2341570
2342030
234.ll70
OF
HUOSUN CllY 5AV1NC,S BM.JK.
PRUVllJENT SAVlNbS BANK
MOk.RlS CUUNT Y SAVING!) BANK
HOWAkO SAVINC,S BANK
LOCAUON
TDCP
MURR l S TOWN
NJ
NJ
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NJ
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4
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HAVE NO Rl:QUREO RE!>ERVE liALANCI:::
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2.;)60950 bkOUKLYN S-AVlNGS BANK
2361000 DIMl: SA\/ INGS bK OF NEW YORK
23b 1030 E:AS T NE:.; YORK SAVINGS BANK
23t>ll50 LlNCl.JLN SAVlNC,S BANK
-· 2361112 ME:.Tk[;POLl l AN SAVINGS BANK
23t>l2i..i} blJFFALO SAVING!) bJi.t.JK
23C.1270 EklE SAVINGS bA!-.K.
2301330 WESTEf...N NCW YOkK. SAVINGS BK
2304070 LUNG ISLA~O SAVIN6S bANK
23649HJ BOWERY SAVINGS bANK
__ 23b50C0 ORY DOCK SAVIN GS dANK
2365061) EMlGRANl SAVlll,GS bAN.K
236~lbl fl\J..NKLlN SAVINGS BANK. Of NY
2.:}b::,1-.:0 GRE:EN,HCH SA\JlNG5:a bANK
23o~2B0 MANHATTAN SAVIN&S bANK.
236535() NEW YORK BANK H,R S.AVlNbS
_ 2360!>60 RlU&EWUOD !>AVlNG!) bANK
Of
--
------
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NEW YURK
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324
Attachment B-1
Co111111ent:
These amendments provide an exclusion from reserve requirements
of up to $10 million for transaction deposits of depository institutions
and an exclusion up to $10 million for time and savings deposits of
banks.
An institution's transaction deposits in excess of $10 million
but not more than $50 million, and a bank's total time and savings
deposits in excess of $10 million but not 1110re than $50 million are
exempted from reserve requirements. Reserve requirements will be imposed
on a depository institution's transaction deposits that exceed $50
million and a commercial bank's total time and savings deposits that
exceed $50 million.
A depository institution will maintain in an Earnings
Participation Account at the Federal Reserve Bank (or passed through
to the Federal Reserve by another institution) an amount resulting
from first, multiplying the appropriate reserve ratios in effect for
each deposit category by the level of the institution's exempted deposits
for each deposit category and, second, deducting from this figure the
amount by which the institution's vault cash exceeds its reserve requirements.
The institution's Earnings Participation Account will earn interest
at a rate equal to the average return earned on the Federal Reserve's
securities portfolio.
The amendments also provide for the following initial reserve ratios and
ranges on deposits:
Transaction
Sa~ings
Short term time
Long term time
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
9.5,
8-101
31
1-3,
3-81
1-3,
a,
11
325
B-2
Section 4 is amended as follows:
(a)
By striking the figure •40,000,000• each time it
appears on page 5 at lines 6 and 13, on page 6 at lines 7
and 17, and on page 9 at lines 20 and 21, and substituting
the figure •so,000,000• in lieu thereof.
(b)
By striking the figures •13•, •14•, and •12• that
appear on page 5 at lines 6, 7, and 8 and on page 6 at lines
17, 18, and 19 and substituting in lieu thereof the figu~es_
•9.s•, •10•, and •a•, respectively.
(c)
By striking the figures •40,000•, •6•, and •4•,
that appear on page 5 at lines 13, 14, and 16 and substituting
in lieu thereof the figures •$so,ooo,ooo,•
(d)
•a•,
and •3• respectively.
By striking on page 5 the words •one-half of 1•
that appear at line 22 and the figure •2• that appears at
line 23 and substituting in lieu thereof the figures •1• and
•3• respectively.
(e)
By striking the figure
•s•
that appears on page
6 at line 3 and substituting in lieu thereof the figure •3•.
(f)
By adding at the end thereof the fo~lowing new subparagraphs:
•111)
Every depository institution shall maintain
in an Earnings Participation Account at a Federal
Reserve Bank of which it is a llelllber or at which
it maintains an account a balance determined by
multiplying the UIOUllt of its transaction
deposit■
that are in excess of $10 million but not more than
$50 million by the reserve ratio in effect for tranaaction
accounts and, in addition, every bank shall main.tain
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
326
B-3
a balance determined by multiplying the amount of
the total of its savings and time deposits that
are in excess of $10 million but not oore than $50
million by the reserve ratio in effect for each
category of savings and time deposits.
If the total
savings and time deposits of a bank exceeds $50
million, the amount of its savings and time deposits
against which a balance shall be maintained shall
be determined by multiplying $SO.million by the
proportion that the bank's deposit in the respective
categories bear to the total of its deposits in
the categories.
'11\ny amount by which a depository institution's holdings
of vault cash exceeds its reserve requirements on
its reservable deposits shall be deducted from the
institution's required Earnings Participation Account
Balance.
•The Earnings Participation Account of a depository
institution shall earn interest at a rate equal
to the average rate earned on the securities portfolio
of the Federal Reserve System during the calendar
quarter immediately preceding the interest payment
date.
The Board is authorized to adopt rules and
regulations relating to the issuance and administration
•of Earnings Participation Accounts.•
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
327
B-4
Section 5 is amended by inserting after the word "Reserves•
on line 4 the words •and balances.•
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
328
Attachlilent C
Section 6 is amended by striking all that follows the word
•services• on line 13 until the period on line 15.
Comaent:
This eliminates the requirement that by July 1, 1980 the Board
have put into effect a schedule of fees for Federal Reserve services.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
329
AttachlEnt D
In Section 3, the second sentence of then- paragraph added to the
end of Section ll(a) of the Federal Reserve Act is amended to read as
follows:
•such reports shall be made (l) directly to the Board in the case
of member banks and for all deposit liabilities in the case of other
depository institutions maintaining transaction accounts as defined in
Section 19 of this Act, and"
Comment:
This amendment clarifies that depository institutions with
transactions deposits will file reports on all deposit liabilities directly
with the Board.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
330
Attachment E
Section 4 is amended by striking subsection (7) on page 8
and inserting in lieu thereof the following:
"(7) A depository institution possessing transaction
accounts shall be entitled to the same discount
and borrowing privileges as member banks.•
The following section is inserted as section 10.
"Abolition of Penalty rate"
"Section 10.
u.s.c.
Section l0(b) of the Federal Reserve Act (12
347b) is amended by striking all after the first sentence
thereof.•
~:
These provisions provide access to the Federal Reserve discount
window to all depository institutions possessing transaction accounts
and eliminate
the penalty rate now required by the Federal Reserve
Act when borrowing institutions collateralize their loans with ineligible
paper.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
331
Attachment 'I!
Section 4 is amended by adding to subsection (5) on page 7
the following:
"Nonmember banks shall be required to maintain reserves
based upon the activities of their foreign branches and
subsidiaries to the same extent required by the Board
of foreign branches and subsidiaries of member banks.•
~•
This provision authorizes the Board to require nonmember banks
to maintain reserves against the obligations of their foreign branches
and subsidiaries on the same basis required of member banks' foreign
branches and subsidiaries.
44-240 0 - 79 - 22
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
332
Attachment G -1
Section 9, entitled "Effective Dates,• is redesignated as
Section 11 and the following is substituted in lieu thereof:
ACCESS TO CLEARING SERVICES
•sec 9.
Reserve Act (12
(a)
The first paragraph of 11ection 13 of the Federal
u.s.c.
(1)
342) is amended as follows:
by inserting after the words "member banks"
the words •or other depository institutions•.
(2)
by inserting after the words •payable upon
presentation• the first and third times they appear,
the words •or other items, including negotiable orders
of withdrawal or share drafts•.
(3)
by inserting after the words •payable upon
presentation within its district,• the words •or other
items, including negotiable orders of withdrawal or share
drafts•.
(4)
by inserting after the words •nonmember bank
or trust company,• wherever they appear the words •or
other depository institution•.
(5)
by inserting after the words •nonmember bank"
after the second colon the words •or other depository
institution•.
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G-2
(b)
Reserve Act (12
The thirteenth paragraph of section 16 of the Federal
u.s.c.
(1)
360) is amended as follows:
by striking out the words "member banks" wherever
they appear and inserting in lieu thereof "depository
institutions•.
(2)
by striking out the words "member bank" wherever
they appear and inserting in lieu thereof "depository
institution•.
(3)
by inserting after "checks" wherever it appears
the words •and other items, including negotiable orders
of withdrawal and share drafts.•
(c)
Reserve Act (12
The fourteenth
u.s.c.
paragraph of section 16 of the Federal
248(0)) is amended by striking out "its
member banks" and inserting in lieu thereof."depository institutions.•
~•
In order to assure equal treatment for all depository institutions
these amendments conform various sections of the Federal Reserve Act
relating to clearing facilities by eliminating the distinctions drawn
by the Act between member and nonmember depository institutions.
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Federal Reserve Bank of St. Louis
MONETARY POLICY IMPROVEMENT ACT OF
1979
MONDAY, MARCH 26, 1979
u. s.
SENATE,
COMMITTEE ON BANKING, HOUSING, AND URBAN AFFAIRS,
Washington, D.C.
The committee met at 10:10 a.m., in room 5302 of the Dirksen
Senate Office Building; Senator William Proxmire (chairman of the
committee) presiding.
Present: Senators Proxmire and Garn.
STATEMENT OF CHAIRMAN PROXMIRE
The CHAIRMAN. The hearing will come to order.
Today we are continuing our hearings to consider legislation to
deal with the problems associated with the erosion of membership
in the Federal Reserve System and to consider the effects continued attrition might have on the ability of the Federal Reserve to
conduct monetary policy. The committee has before it two bills: S.
85, which I have introduced; and S. 353, which Senator Tower has
introduced.
When Chairman Miller appeared before the committee on February 26, he presented another option for consideration which he had
already shared with the House Banking Committee. Since that
time the Board had decided that it is not wedded to its so-called
"Earnings Participation Accounts," which would allow interest to
be paid on some reserves. That is, I think, a significant development.
Another significant development was the failure last Wednesday
of the House Banking Committee to come to any agreement on how
they would remedy the membership problem.
As we hear from our witnesses about their views on S. 85 and on
S. 353, I think that it is important for the committee to realize that
although there may be alternative ways to deal with the problems
and issues raised by the attrition of the Federal Reserve membership, the basic issue is whether we really want a strong Federal
Reserve that can act as the Nation's central bank for all banks and
depository institutions, or whether we should continue with the
system we currently have in place.
It is my view that if we are going to do something, we should
seek a permanent solution to the membership problem. I see no
way to do that without really making membership itself a nonissue, and focusing on the establishment of universal reserve requirements.
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Federal Reserve Bank of St. Louis
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We are the only country-the only major industrialized country-where the central bank does not have the legal authority to
apply reserve requirements on all depository institutions. It is extremely important that the Federal Reserve have the necessary
powers to conduct monetary policy, especially in this inflationary
time.
We already have an inequitable situation with regard to reserve
requirements, and I hope that we can correct that situation. It is
also important that the Federal Reserve be able to get all the
deposit information it needs to conduct monetary policy. And it
would be very beneficial to the Nation if the Fed's discount window
were available to all banks, and if the Federal Reserve's clearing
services were offered on the basis of a market related price rather
than given away to members only.
Finally, I am compelled to say that I remain unalterably opposed
to the payment of interest on reserves. There is absolutely no
precedent for paying interest on reserves and no authority for it in
the Federal Reserve Act.
If we were to pay even a little interest, it wouldn't be long before
the banks would be knocking on our doors demanding more and
more and more. I suppose there would be no stopping it until the
Treasury had paid in full the market rate on all reserves, and that
would go into billions of dollars a year. It would be hard to explain
to the public at a time when we are cutting back everywhere else,
and should be cutting back.
Having said all this, I want to repeat what I said to Chairman
Miller: I would be willing to support the payment of interest on
reserves if we revise the law on entry into the banking business to
make it conform with entry in other businesses, if we abolish the
prohibition of interest on demand deposits, if we abolish regulation
Q, and if we arrange some kind of a franchise tax to recognize the
advantage banks have in investing in tax-exempt Government obligations so they pay taxes comparable with other industries. When
that day comes, I will be happy to support such a bill. Until that
day comes, you will find me in solid opposition.
But if the banks simply want a bill which will result in lower
re;serve requirements, and therefore increased profits for them, and
will at the same time give the Federal Reserve the universal reserve requirements they need, they will have my support and we
can enact such a law promptly.
STATEMENT OF SENATOR GARN
Senator GARN. Mr. Chairman, I have no formal statement, but I
do want to _express, at the outset, my opposition to mandatory
reserves, which we will get into in more detail in this testimony
and in later sessions.
To me, thjg jg a typical way in which the Federal Government
operates when an agency has a real problem such as the loss of
Federal Reserve membership. I have always be'en a staunch defender of the Federal Reserve System-but to comment and simply say
"we have a problem," and we are asking Congress to compel banks
to ~me members-that jg the typical response of most Federal
agencies when they do not have the courage to push for what they
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Federal Reserve Bank of St. Louis
337
really think is the solution to the problem to attempt to be competitive, to offer a service that will induce people to want to belong.
We run to Congress and say, "OK, we will use the big club:
legislation. We will simply pass a bill that compels and requires
and mandates."
I am opposed to that principle in general, not only in this particular instance, but its use over and over and over again, and I think
the independent bankers ought to recognize that. I am very, very
disappointed in the action they took this month at their convention. I think it is an extremely short-sighted position.
If this bill is passed, they will be very, very sorry that they put
the Fed in this position. I do not believe the Fed will be as efficient,
or as good an organization as a result of going to this kind of
legislation.
I think it is a copout-what we normally see in Governmentonce again, a compulsion of mandating by Congress, and we will
live to regret it if we pass this bill.
The CHAIRMAN. Thank you.
We have a letter from John A. Heimann, the Comptroller of the
Currency, relative to S. 85 which we will include in the record at
this point.
[The letter follows:]
CoMPTROLLER OF THE CURRENCY,
ADMINISTRATOR OF NATIONAL BANKS,
Washington, D.C. April 2, 1979.
Hon. WILLIAM PROXMIRE,
Chairman, Committee on Banking, Housing and Urban Affairs,
U.S. Senate, Washington, D.C.
DEAR MR. CHAIRMAN: I welcome the opportunity to present the views of the Office
of the Comptroller of the Currency on S. 85, the "Monetary Policy Improvement Act
of 1979," and related legislation designed to deal with the Federal Reserve membership problem.
The continuing attrition of banks from the Federal Reserve System, if not corrected, may have serious implications for our financial system and for the governmental
framework designed by the Congress to assure the stability of this system. In
testimony on S. 3304 before the Senate Committee on Banking, Housing and Urban
Affairs last August, we stressed that the objective in devising a strategy for dealing
with the membership problem should be the evolution of a financial system which is
as efficient and flexible as possible and which relies to the greatest extent possible
upon the marketplace as the allocator of resources. Such a strategy should provide
for equitable treatment of like institutions, explicit pricing of Federal Reserve
services, and open access to those services for all depository institutions.
Furthermore, we stated that development of specific solutions should be consistent with the following principles: (1) reserve requirements should fall equally upon
comparable liabilities for all deposit-taking institutions; (2) the efficiency and effectiveness of control of monetary policy in the long run should be maximized; (3) the
cost to Treasury and the taxpayer should be minimized; (4) the balance between the
federal and state banking systems should be restored; and (5) the solution should be
simple and easy to administer.
S. 85 would impose uniform reserve requirements against similar deposits at
member and nonmember commercial banks and against transactions accounts at
thrift institutions. The first $40 million of demand and transactions accounts and
the first $40 million of time and savings deposits at each institution would be
exempted from reserve requirements. There would be no payment of interest on
reserves.
As we understand the proposed bill, all depository institutions would be given
access to Federal Reserve services except the discount window, which would be
limited to those institutions required to maintain reserves. In addition, nonmember
banks which, because of their size, are not required to hold reserves would be given
access to the discount window upon certification of solvency by the FDIC. S. 85
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would also require the Federal Reserve to charge for the services it provides by July
1, 1980.
We support legislation along the lines suggested by S. 85. While we believe that
eventually there should be substantial equity among all competitors of comparable
size and characteristics regardless of their types of charter or regulator, we do not
believe that action to halt the drain of deposits subject to Federal Reserve System
reserve requirements should be deferred. Accordingly, we support S. 85 as a poistive
and practical step toward eliminating the inequitable burden of reserve requirements and toward providing a solution to the problem of assuring the Federal
Reserve adequate control over the monetary aggregates.
We believe action should take place now before more serious consequences develop. Commercial banks have been leaving the Federal Reserve System at an accelerating rate and in recent years some large banks have joined this exodus. The basic
reason for the exodus is that member banks are required to set aside a portion of
their reserves in noninterest earning form whereas most nonmember banks and
thrifts are able to fulfill all or part of their
@FedFRASER