Andrew Bailey, Governor of Bank of England in this speech discusses what it takes for an economy to grow.
I am going to speak today about a topical subject – economic growth. The question I set myself is, what does it take to create a sustained increase in the growth rate of the economy in today’s world? I’m going to range quite wide in answering the question, drawing in the current situation here in the UK and the world, and some economic history too.
Economic growth is, quite simply, the rate of expansion of the size of the economy. Let me start by explaining how it matters to the Monetary Policy Committee when we decide on the appropriate level of interest rates to achieve our objective of price stability, the 2% inflation target. There are two parts to why growth matters for monetary policy – the outcome and the inputs. On the first, quite simply, low and stable inflation is the best contribution monetary policy can make to growth in the economy. The same goes for financial stability, our other core responsibility as the central bank, which is also a key condition for growth.
On the inputs side, growth matters because monetary policy decisions require us to assess the inflationary consequences of the pressure on economic resources in this country. That pressure reflects the balance between demand and supply in goods and services and labour markets. To observe that level of pressure, we can’t just look at actual national income or output and employment. If that’s all we did, we would be left saying “so what?” We have to compare the actual position with the productive potential of the economy (the supply capacity of the economy) and in doing so assess resource utilisation and thus the degree of pressure.
The British growth has slowed considerably in recent years:
So, what has been going on with the growth of potential supply in the economy in recent times? A spoiler here – it’s not a very good story. I am going to give three figures for three time periods based on Bank staff estimates: the average annual rate of growth of potential supply in the UK economy and the contribution to that growth rate of productivity and labour supply. From 1990 to 2008, the average annual potential growth rate was 2.6%. Productivity contributed 2.2pp and labour supply 0.4pp. After the financial crisis, from 2009 to 2019, the potential growth rate fell to 1.3%pa, of which productivity contributed 0.3pp and labour supply 1.0pp. From 2020 to 2023 the potential growth rate fell further to 0.7%, with productivity contributing 0.5pp and labour supply 0.2pp. Covid was clearly a major factor in the most recent period. The comparable numbers for the growth of demand in the economy – actual growth – are: 1990-2008 2.3%; 2009-2019 1.4% and 2020-2023 1.1%.
I think the point comes across clearly. The growth of potential supply has fallen, with the main contributor to that fall being weaker productivity growth. Covid was a major factor in causing a further fall. But it is the decade before Covid that provides a better read.
Insights from economic history:
Britain is credited with being the first modern industrial nation. Typically, the definition of modern economic growth in this context is where technological progress is centre stage. Recall that GDP growth per capita was 1.8% pa before the financial crisis, but only 0.7% pa afterwards. Looked at in the longer run context, a figure of around 2.2%-2.4% pa was the average from 1950 onwards. And, a figure of about ¾% was respectable for the nineteenth century, where the average was a bit under 1% for the period of the so-called Industrial Revolution. All things are relative and close to 1% was a considerable step up on the pre-Industrial era.
Still, we are left with the conclusion that a growth rate of per capita income which disappoints today would have looked respectable during the Industrial Revolution. What’s changed? Two things stand out. First, it looks as if the overall growth rate has been enhanced over time as the development of institutions (public and private) and policies has provided an environment that supports growth. This is often known as endogenous growth – the environment supports and enhances the impact of technological progress and investment. Second, in an open economy such as the UK a key to growth has over time become the prompt and effective diffusion of foreign technology as well as domestic invention. In other words, there is a bigger base of innovation to draw upon.
Having made the point that things have changed in terms of growth rates since the Industrial Revolution, I want to go back to that period to identify four salient features which I believe are highly relevant to understanding today’s environment. The four are: technological change; energy supply; population change; and the role of trade. These are all big subjects in their own right, so my treatment of them is going to be quite sparing. The main point I want to draw out is that each of these issues was important in the process of industrialisation, and each of them remains important in today’s world.
Let me start by attempting to define what is meant by the term Industrial Revolution? A lot of ink has been used on this one. I am going to borrow a definition from the economic historian Tony Wrigley:
“The distinguishing feature of the industrial revolution which has transformed the lives of the inhabitants of industrialised societies has been a large and sustained rise in real income per head. Without such a change the bulk of all income would necessarily have continued to be spent on food and the bulk of the labour force would therefore have continued to be employed upon the land …..only when output growth exceeds population increase substantially and consistently, can there be grounds for supposing that an industrial revolution is in train.
The essence of the definition is that technological change appeared to break the tight link between the economy’s endowments of factors of production (land, capital and labour) and income, a break that was not expected to occur by classical economists such as Adam Smith who did not envisage sustained growth. This technological change did not happen as quickly as the word ‘revolution’ would suggest. Moreover, it didn’t happen evenly over time and certainly not evenly across the economy, and that too has led to a lot of ink being used to describe and debate the meaning of the term Industrial Revolution.
Lessons for today?
I think there are two lessons. First, if we think we are more or less using the factors of production fully today – if Y* is near to the production frontier made possible by the state of current technology, then we will need some quite large technological advance to break again the link that Adam Smith and the classical economists described – in other words, to push the frontier out. I am going to come back to whether AI is that technology. Second, even if the link is broken, it will take time to materialise and spread across the economy. This is a long term process. To be clear though, this does not mean that we can expect no growth without a major breakthrough on technology. Growth rates will go up and down for many reasons. But a substantial and sustained increase in growth most probably does need this breakthrough to happen, as has been case in the past.
Another way of capturing this issue is to ask what has caused the slowdown in productivity growth evident in all the major economies – not just the UK – over the last 15 to 20 years. There are two theories on this whodunnit. The first is that it is a consequence of the Global Financial Crisis.
The second is that since the start of the slowdown seems to pre-date the GFC it is due to a trend decline in technological innovation as the ICT revolution of the internet, faster semi-conductors etc., started to slow (and what matters here is the rate of increase of innovation, not the level of it). The evidence seems to provide rather more support for the second explanation, but both could have been at work.
Conclusion:
To conclude, we face a necessary challenge to raise the potential growth rate of the economy. There are strong headwinds. The combination of technology and trade remains an essential route to increasing productivity. Adam Smith’s basic tenet is as true today as it was two hundred and more years ago. Growth also requires strong institutions and public policies to provide a supportive environment. Education and universities are part of that story – to create and encourage the development of human capital so, too is a strong multilateral international institutional framework for economy policy, including trade policy. And, central banks are important too, with our strong commitment to monetary and financial stability.