Federal Reserve responses to the subprime crisis

Last updated • 9 min readFrom Wikipedia, The Free Encyclopedia

The U.S. central banking system, the Federal Reserve, in partnership with central banks around the world, took several steps to address the subprime mortgage crisis. Federal Reserve Chairman Ben Bernanke stated in early 2008: "Broadly, the Federal Reserve’s response has followed two tracks: efforts to support market liquidity and functioning and the pursuit of our macroeconomic objectives through monetary policy." [1] A 2011 study by the Government Accountability Office found that "on numerous occasions in 2008 and 2009, the Federal Reserve Board invoked emergency authority under the Federal Reserve Act of 1913 to authorize new broad-based programs and financial assistance to individual institutions to stabilize financial markets. Loans outstanding for the emergency programs peaked at more than $1 (~$1.00 in 2023) trillion in late 2008." [2]

Contents

Broadly stated, the Fed chose to provide a "blank cheque" for the banks, instead of providing liquidity and taking over. It did not shut down or clean up most troubled banks; and did not force out bank management or any bank officials responsible for taking bad risks, despite the fact that most of them had major roles in driving to disaster their institutions and the financial system as a whole. This lavishing of cash and gentle treatment was the opposite of the harsh terms the U.S. had demanded when the financial sectors of emerging market economies encountered crises in the 1990s. [3]

Signaling

In August 2007, Committee announced that "downside risks to growth have increased appreciably," a signal that interest rate cuts might be forthcoming. [4] Between 18 September 2007 and 30 April 2008, the target for the Federal funds rate was lowered from 5.25% to 2% and the discount rate was lowered from 5.75% to 2.25%, through six separate actions. [5] [6] The discount rate is the interest rate charged to commercial banks and other depository institutions on loans they receive from their regional Federal Reserve Bank's lending facility via the Discount window.

Expansion of Fed Balance Sheet ("Quantitative Easing")

Federal Reserve Holdings of Treasury and Mortgage-Backed Securities U.S. Federal Reserve - Treasury and Mortgage-Backed Securities Held.png
Federal Reserve Holdings of Treasury and Mortgage-Backed Securities

The Fed can electronically create money and use it to lend against the collateral of various types, such as agency mortgage-backed securities or asset-backed commercial paper. This is effectively "printing money" and increases the money supply, which under normal economic conditions creates inflationary pressure. Ben Bernanke called this approach "credit easing", possibly to distinguish it from the widely used expression Quantitative easing. In a March 2009 interview, he stated that the expansion of the Fed balance sheet was necessary "...because our economy is very weak and inflation is very low. When the economy begins to recover, that will be the time that we need to unwind those programs, raise interest rates, reduce the money supply, and make sure that we have a recovery that does not involve inflation." [7]

Both the actual and authorized size of the Fed balance sheet (i.e., the amount it is allowed to borrow from the Treasury to lend) was increased significantly during the crisis. The money created was funneled through certain financial institutions, which use it to lend to corporations issuing the financial instruments that serve as collateral. The type or scope of assets eligible to be collateral for such loans has expanded throughout the crisis.

In March 2009, the Federal Open Market Committee (FOMC) decided to increase the size of the Federal Reserve's balance sheet further by purchasing up to an additional $750 billion of government-sponsored agency mortgage-backed securities, bringing its total purchases of these securities to up to $1.25 trillion during 2009, and to increase its purchases of agency debt this year by up to $100 billion to a total of up to $200 billion. Moreover, to help improve conditions in private credit markets, the Committee decided to purchase up to $300 billion (~$414 billion in 2023) of longer-term Treasury securities during 2009. [8]

Mortgage lending rules

In July 2008, the Fed finalized new rules that apply to mortgage lenders. Fed Chairman Ben Bernanke stated that the rules "prohibit lenders from making higher-priced loans without due regard for consumers' ability to make the scheduled payments and require lenders to verify the income and assets on which they rely when making the credit decision. Also, for higher-priced loans, lenders now will be required to establish escrow accounts so that property taxes and insurance costs will be included in consumers' regular monthly payments...Other measures address the coercion of appraisers, servicer practices, and other issues. We believe the new rules will help to restore confidence in the mortgage market." [9]

Open market operations

Agency Mortgage-Backed Securities (MBS) Purchase Program

The Fed and other central banks have conducted open market operations to ensure member banks have access to funds (i.e., liquidity). These are effectively short-term loans to member banks collateralized by government securities. Central banks have also lowered the interest rates charged to member banks (called the discount rate in the U.S.) for short-term loans. [10] Both measures effectively lubricate the financial system, in two key ways. First, they help provide access to funds for those entities with illiquid mortgage-backed securities. This helps these entities avoid selling the MBS at a steep loss. Second, the available funds stimulate the commercial paper market and general economic activity. Specific responses by central banks are included in the subprime crisis impact timeline.

In November 2008, the Fed announced a $600 billion (~$834 billion in 2023) program to purchase the MBS of the GSE, to help lower mortgage rates. [11]

Broad-based programs

Term Auction Facility (TAF)

The Fed is using the Term Auction Facility to provide short-term loans (liquidity) to banks. The Fed increased the monthly amount of these auctions to $100 billion during March 2008, up from $60 billion in prior months. In addition, term repurchase agreements expected to cumulate to $100 billion were announced, which enhance the ability of financial institutions to sell mortgage-backed and other debt. The Fed indicated that both the TAF and repurchase agreement amounts will continue and be increased as necessary. [12] During March 2008, the Fed also expanded the types of institutions to which it lends money and the types of collateral it accepts for loans. [13]

Dollar Swap Lines

Dollar Swap Lines exchanged dollars with foreign central banks for foreign currency to help address disruptions in dollar funding markets abroad. [2]

Term Securities Lending Facility (TSLF)

The Term Securities Lending Facility auctioned loans of U.S. Treasury securities to primary dealers against eligible collateral. [2]

Primary Dealer Credit Facility (PDCF)

Concurrent to the collapse of Bear Stearns, the Fed announced the creation of a new lending facility, the Primary Dealer Credit Facility. [14] The PDCF provided overnight cash loans to primary dealers against eligible collateral. [2]

Asset-Backed Commercial Paper Money Market Mutual Fund Liquidity Facility (AMLF or ABCP MMMF)

The Asset-Backed Commercial Paper Money Market Mutual Fund Liquidity Facility provided loans to depository institutions and their affiliates to finance purchases of eligible asset-backed commercial paper from money market mutual funds. [2]

Commercial Paper Funding Facility (CPFF)

On October 7, 2008, the Federal Reserve further expanded the collateral it will loan against, to include commercial paper. The action made the Fed a crucial source of credit for non-financial businesses in addition to commercial banks and investment firms. Fed officials said they'll buy as much of the debt as necessary to get the market functioning again. They refused to say how much that might be, but they noted that around $1.3 trillion worth of commercial paper would qualify. There was $1.61 (~$2.00 in 2023) trillion in outstanding commercial paper, seasonally adjusted, on the market as of October 1, 2008, according to the most recent data from the Fed. That was down from $1.70 trillion in the previous week. Since the summer of 2007, the market has shrunk from more than $2.2 trillion. [15]

The Commercial Paper Funding Facility provided loans to a special purpose vehicle to finance purchases of new issues of asset-backed commercial paper and unsecured commercial paper from eligible issuers. [2]

Term Asset-Backed Securities Loan Facility (TALF)

The Term Asset-Backed Securities Loan Facility provided loans to eligible investors to finance purchases of eligible asset-backed securities. [2]

In November 2008, the Fed announced the $200 billion TALF. This program supported the issuance of asset-backed securities (ABS) collateralized by loans related to autos, credit cards, education, and small businesses. This step was taken to offset liquidity concerns. [16]

In March 2009, the Fed announced that it was expanding the scope of the TALF program to allow loans against additional types of collateral. [17]

Assistance to Individual Institutions

Bear Stearns Companies, Inc. acquisition by JP Morgan Chase & Co. (JPMC)

In March 2008, the Fed provided funds and guarantees to enable bank J.P. Morgan Chase to purchase Bear Stearns, a large financial institution with substantial mortgage-backed securities (MBS) investments that had recently plunged in value. This action was taken in part to avoid a potential fire sale of nearly U.S. $210 billion of Bear Stearns' MBS and other assets, which could have caused further devaluation in similar securities across the banking system. [18] [19] In addition, Bear had taken on a significant role in the financial system via credit derivatives, essentially insuring against (or speculating regarding) mortgage and other debt defaults. The risk to its ability to perform its role as a counterparty in these derivative arrangements was another major threat to the banking system. [20]

Programs included a Bridge Loan, an overnight loan provided to JPMC subsidiary, with which this subsidiary made a direct loan to Bear Stearns Companies, Inc, and Maiden Lane (I), a special purpose vehicle created to purchase approximately $30 billion of Bear Stearns's mortgage-related assets. [2]

AIG Assistance

The Federal Reserve created five programs to give assistance to AIG: [2]

  1. Revolving Credit Facility, a revolving loan for the general corporate purposes of AIG and its subsidiaries, and to pay obligations as they came due.
  2. Securities Borrowing Facility, which provided collateralized cash loans to reduce pressure on AIG to liquidate residential mortgage-backed securities (RMBS) in its securities lending portfolio.
  3. Maiden Lane II, a special purpose vehicle created to purchase RMBS from securities lending portfolios of AIG subsidiaries.
  4. Maiden Lane III, a special purpose vehicle created to purchase collateralized debt obligations on which AIG Financial Products had written credit default swaps.
  5. Life Insurance Securitization, which was authorized to provide credit to AIG that would be repaid with cash flows from its life insurance businesses. It was never used.

Loans to affiliates of some primary dealers

The Federal Reserve provided loans to broker-dealer affiliates of four primary dealers on terms similar to those for PDCF. [2]

Citigroup Inc. lending commitment

The Citigroup Inc. lending commitment was a commitment to provide non-recourse loan to Citigroup against ringfence assets if losses on asset pool reached $56.2 billion. [2]

Bank of America Corporation lending commitment

The Bank of America Corporation lending commitment was a commitment to provide non-recourse loan facility to Bank of America if losses on ring fence assets exceeded $18 billion (agreement never finalized). [2]

Related Research Articles

<span class="mw-page-title-main">Federal Reserve</span> Central banking system of the US

The Federal Reserve System is the central banking system of the United States. It was created on December 23, 1913, with the enactment of the Federal Reserve Act, after a series of financial panics led to the desire for central control of the monetary system in order to alleviate financial crises. Over the years, events such as the Great Depression in the 1930s and the Great Recession during the 2000s have led to the expansion of the roles and responsibilities of the Federal Reserve System.

<span class="mw-page-title-main">Bear Stearns</span> American investment bank

The Bear Stearns Companies, Inc. was an American investment bank, securities trading, and brokerage firm that failed in 2008 during the 2007–2008 financial crisis and the Great Recession. After its closure it was subsequently sold to JPMorgan Chase. The company's main business areas before its failure were capital markets, investment banking, wealth management, and global clearing services, and it was heavily involved in the subprime mortgage crisis.

<span class="mw-page-title-main">Excess reserves</span> Monies held by bank in excess of reserve requirement

Excess reserves are bank reserves held by a bank in excess of a reserve requirement for it set by a central bank.

<span class="mw-page-title-main">Quantitative easing</span> Monetary policy tool

Quantitative easing (QE) is a monetary policy action where a central bank purchases predetermined amounts of government bonds or other financial assets in order to stimulate economic activity. Quantitative easing is a novel form of monetary policy that came into wide application after the 2007–2008 financial crisis. It is used to mitigate an economic recession when inflation is very low or negative, making standard monetary policy ineffective. Quantitative tightening (QT) does the opposite, where for monetary policy reasons, a central bank sells off some portion of its holdings of government bonds or other financial assets.

<span class="mw-page-title-main">Subprime mortgage crisis</span> 2007 mortgage crisis in the United States

The American subprime mortgage crisis was a multinational financial crisis that occurred between 2007 and 2010 that contributed to the 2007–2008 global financial crisis. The crisis led to a severe economic recession, with millions losing their jobs and many businesses going bankrupt. The U.S. government intervened with a series of measures to stabilize the financial system, including the Troubled Asset Relief Program (TARP) and the American Recovery and Reinvestment Act (ARRA).

The subprime mortgage crisis impact timeline lists dates relevant to the creation of a United States housing bubble, the 2005 housing bubble burst and the subprime mortgage crisis which developed during 2007 and 2008. It includes United States enactment of government laws and regulations, as well as public and private actions which affected the housing industry and related banking and investment activity. It also notes details of important incidents in the United States, such as bankruptcies and takeovers, and information and statistics about relevant trends. For more information on reverberations of this crisis throughout the global financial system see 2007–2008 financial crisis.

<span class="mw-page-title-main">Term auction facility</span> Temporary Program

The Term Auction Facility (TAF) was a temporary program managed by the United States Federal Reserve designed to "address elevated pressures in short-term funding markets." Under the program the Fed auctions collateralized loans with terms of 28 and 84 days to depository institutions that are "in generally sound financial condition" and "are expected to remain so over the terms of TAF loans." Eligible collateral is the same as that accepted for discount window loans and includes a wide range of financial assets. The program was instituted in December 2007 in response to problems associated with the subprime mortgage crisis and was motivated by a desire to address a widening spread between interest rates on overnight and term interbank lending, indicating a retreat from risk-taking by banks. The action was in coordination with simultaneous and similar initiatives undertaken by the Bank of Canada, the Bank of England, the European Central Bank and the Swiss National Bank.

<span class="mw-page-title-main">History of Federal Open Market Committee actions</span>

This is a list of historical rate actions by the United States Federal Open Market Committee (FOMC). The FOMC controls the supply of credit to banks and the sale of treasury securities.

On March 17, 2008, in response to the subprime mortgage crisis and the collapse of Bear Stearns, the Federal Reserve announced the creation of a new lending facility, the Primary Dealer Credit Facility (PDCF). Eligible borrowers include all financial institutions listed as primary dealers, and the term of the loan is a repurchase agreement, or "repo" loan, whereby the broker dealer sells a security in exchange for funds through the Fed's discount window. The security in question acts as collateral, and the Federal Reserve charges an interest rate equivalent to the Fed's primary credit rate. The facility was intended to improve the ability of broker dealers to access liquidity in the overnight loan market that banks use to meet their reserve requirements.

<span class="mw-page-title-main">Term Securities Lending Facility</span>

The Term Securities Lending Facility (TSLF) was a 28-day facility managed by the United States Federal Reserve offering Treasury general collateral (GC) to the primary dealers in exchange for other program-eligible collateral. It was created to combat the liquidity crisis in American banks that had begun in late 2007, part of the broader 2007–2008 financial crisis. The facility was open from March 2008 through January 2010.

This article provides background information regarding the subprime mortgage crisis. It discusses subprime lending, foreclosures, risk types, and mechanisms through which various entities involved were affected by the crisis.

The Emergency Economic Stabilization Act of 2008, also known as the "bank bailout of 2008" or the "Wall Street bailout", was a United States federal law enacted during the Great Recession, which created federal programs to "bail out" failing financial institutions and banks. The bill was proposed by Treasury Secretary Henry Paulson, passed by the 110th United States Congress, and was signed into law by President George W. Bush. It became law as part of Public Law 110-343 on October 3, 2008. It created the $700 billion Troubled Asset Relief Program (TARP), which utilized congressionally appropriated taxpayer funds to purchase toxic assets from failing banks. The funds were mostly redirected to inject capital into banks and other financial institutions while the Treasury continued to examine the usefulness of targeted asset purchases.

The government interventions during the subprime mortgage crisis were a response to the 2007–2009 subprime mortgage crisis and resulted in a variety of government bailouts that were implemented to stabilize the financial system during late 2007 and early 2008.

The Term Asset-Backed Securities Loan Facility (TALF) is a program created by the U.S. Federal Reserve to spur consumer credit lending. The program was announced on November 25, 2008, and was to support the issuance of asset-backed securities (ABS) collateralized by student loans, auto loans, credit card loans, and loans guaranteed by the Small Business Administration (SBA). Under TALF, the Federal Reserve Bank of New York authorized up to $200 billion of loans on a non-recourse basis to holders of certain AAA-rated ABS backed by newly and recently originated consumer and small business loans. As TALF money did not originate from the U.S. Treasury, the program did not require congressional approval to disburse funds, but an act of Congress forced the Fed to reveal how it lent the money. The TALF began operation in March 2009 and was closed on June 30, 2010. TALF 2 was initiated in 2020 during the COVID-19 pandemic.

The Subprime mortgage crisis solutions debate discusses various actions and proposals by economists, government officials, journalists, and business leaders to address the subprime mortgage crisis and broader 2007–2008 financial crisis.

<span class="mw-page-title-main">Public–Private Investment Program for Legacy Assets</span>

On March 23, 2009, the United States Federal Deposit Insurance Corporation (FDIC), the Federal Reserve, and the United States Treasury Department announced the Public–Private Investment Program for Legacy Assets. The program is designed to provide liquidity for so-called "toxic assets" on the balance sheets of financial institutions. This program is one of the initiatives coming out of the implementation of the Troubled Asset Relief Program (TARP) as implemented by the U.S. Treasury under Secretary Timothy Geithner. The major stock market indexes in the United States rallied on the day of the announcement rising by over six percent with the shares of bank stocks leading the way. As of early June 2009, the program had not been implemented yet and was considered delayed. Yet, the Legacy Securities Program implemented by the Federal Reserve has begun by fall 2009 and the Legacy Loans Program is being tested by the FDIC. The proposed size of the program has been drastically reduced relative to its proposed size when it was rolled out.

Central bank liquidity swap is a type of currency swap used by a country's central bank to provide liquidity of its currency to another country's central bank. In a liquidity swap, the lending central bank uses its currency to buy the currency of another borrowing central bank at the market exchange rate, and agrees to sell the borrower's currency back at a rate that reflects the interest accrued on the loan. The borrower's currency serves as collateral.

Maiden Lane Transactions refers to three limited liability companies created by the Federal Reserve Bank of New York in 2008 as financial vehicles to facilitate transactions involving three entities: the former Bear Stearns company as the first entity, the lending division of the former American International Group (AIG) as the second, and the former AIG's credit default swap division as the third. The name Maiden Lane was taken from the street on the north side of the Federal Reserve Bank's Manhattan location.

<span class="mw-page-title-main">2007–2008 financial crisis</span> Worldwide economic crisis

The 2007–2008 financial crisis, or the global financial crisis (GFC), was the most severe worldwide economic crisis since the 1929 Wall Street crash that began the Great Depression. Causes of the crisis included predatory lending in the form of subprime mortgages to low-income homebuyers and a resulting housing bubble, excessive risk-taking by global financial institutions, and lack of regulatory oversight, which culminated in a "perfect storm" that triggered the Great Recession, which lasted from late 2007 to mid-2009. The financial crisis began in early 2007, as mortgage-backed securities (MBS) tied to U.S. real estate, as well as a vast web of derivatives linked to those MBS, collapsed in value. Financial institutions worldwide suffered severe damage, reaching a climax with the bankruptcy of Lehman Brothers on September 15, 2008, and a subsequent international banking crisis.

United States policy responses to the late-2000s recession explores legislation, banking industry and market volatility within retirement plans.

References

  1. "Financial Markets, the Economic Outlook, and Monetary Policy". Board of Governors of the Federal Reserve System. Retrieved 2021-12-17.
  2. 1 2 3 4 5 6 7 8 9 10 11 12 U.S. General Accounting Office. Federal Reserve System: Opportunities Exist to Strengthen Policies and Processes for Managing Emergency Assistance , GAO-11-696. Washington, DC: General Accounting Office, 2011.
  3. Simon Johnson and James Kwak, 13 Bankers: The Wall Street Takeover and the Next Financial Meltdow, (New York: Pantheon Books, 2010), p. 173
  4. FRB: Press Release-FOMC statement-17 August 2007
  5. FRB: Press Release-FOMC Statement-18 September 2007
  6. FRB: Press Release-FOMC statement-18 March 2008
  7. Bernanke-60 Minutes Interview
  8. "FOMC statement". Board of Governors of the Federal Reserve System. Retrieved 2021-12-17.
  9. FRB: Testimony-Bernanke, Semiannual Monetary Policy Report to the Congress-15 July 2008
  10. "FRB: Speech--Bernanke, The Recent Financial Turmoil and its Economic and Policy Consequences--15 October 2007". 2008. Retrieved 2008-05-19.
  11. "Fed - GSE (Government Sponsored Enterprise) MBS purchases". Federalreserve.gov. 2008-11-25. Retrieved 2009-02-27.
  12. FRB: Press Release-Federal Reserve announces two initiatives to address heightened liquidity pressures in term funding markets-7 March 2008
  13. Investment Firms Tap Fed for Billions: Financial News - Yahoo! Finance Archived March 23, 2008, at the Wayback Machine
  14. "Fed acts Sunday to prevent global bank run Monday". Marketwatch.
  15. Fed Action
  16. "Fed News Release - TALF". Federalreserve.gov. 2008-11-25. Retrieved 2009-02-27.
  17. "Board announces that the set of eligible collateral for loans extended by the Term Asset-Backed Loan Facility (TALF) is being expanded to include four additional categories of asset-backed securities". Board of Governors of the Federal Reserve System. Retrieved 2021-12-17.
  18. JPMorgan to buy Bear Stearns for $2 a share - U.S. business - nbcnews.com
  19. After Bear Stearns, others could be at risk - U.S. business - nbcnews.com
  20. "The $2 bail-out". The Economist. 19 March 2008.