=a
‘voxEU / COLUMNS.
In this section
ee osTe aes
MWS | % MWS 4 Net
A S letto Bre
8 ae £, 2.16 30,91 33,
Summe : 282 8,07 9,
3,69
HM
A temporary VAT cut as unconventional fiscal policy
Ruediger Bachmann, Benjamin Born, Olga Goldfayn-Frank, Georg Kocharakov, Ralph Lueticke, Michael Weber / 20 Nov 2021
Unconventional fiscal policy acts as a potential stimulus because higher expected future prices should incentivise spending today. This,
‘column shows that the temporary reduction in Germany's value added tax in the second half of 2020 led to a 36% increase in durable
‘spending for individuals with a high perceived price pass-through, along with an increase in semi- and non-durable spending. In total,
‘aggregate consumption spending rose by about €34 billion. Unlike unconventional monetary policy, which often relies on consumer
‘sophistication, the stabilisation success of the temporary VAT cut was partly related to its simplicity.
uediger Bachmann
Benjamin Born
Georgi Kocharakov
Ralph LuettickeMichael Weber
‘Monetary policy is often the preferred tool to stabilise business cycles because it can be implemented swiftly and it does not rely on large
fiscal multipliers. When the effective lower hound (ELB) on nominal interest rates limits the ammunition of conventional monetary policy,
however, alternative measures are needed. Unconventional fiscal policy uses changes in consumption taxes to engineer an increasing path
of future prices of consumption goods, either through pre-announced increases or immediate, temporary cuts. With nominal interest rates
fixed atthe ELB, unconventional fiscal policy acts as a potential stimulus because higher expected future prices are tantamount to lower
‘current real interest rates, which should incentivise spending today. The theoretical channel through which unconventional fiscal policy
stimulates aggregate demand is, hence, very similar tothe transmission channel of conventional monetary policy and operates through the
‘consumption Euler equation (Correia et al. 2013, D/Acunto et al 2018, 2021a, 20218).
In arecent paper (Bachmann et al. 2021b), we exploit the unexpected announcement ofthe German federal government on 3 June 2020 t0
temporarily cut the regular value added tax (VAT) rate by 3 percentage points with the aim of studying the effectiveness and transmission
channels of unconventional fiscal policy. The announcement was passed into law on 29 June 2020, became effective a few days later on 1 July
2020, and lasted until 31 December 2020, Using survey methods and scanner data, we find that Germans substantially increased their
consumption expenditures, especially on durable goods, during the period of lower VAT.
In principle, changes in the VAT rate affect all consumers in an economy. Therefore, identifying their causal effect on consumption is
difficult. In addition, during the second half of 2020, Germany was in the midst of the Covid-19 pandemic and an accompanying recession,
‘The stated purpose of the temporary VAT cut was, therefore, to stimulate the German economy. It was patt ofa larger stimulus package
hich also included, for instance, a direct transfer payment for families with children and a number of tax relief measures for firms. Finally,
the second half of any year exhibits particular seasonal spending patterns (e.g. summer vacations and Christmas). To tackle these empirical
challenges, we employ survey methods, using existing survey infrastructures at the Bundesbank and the Gesellschaft fir Konsumforschung
(Gf), a research institute that produces the German part ofthe EU-harmonised consumer sentiment index. We do so with an ex-ante and an
‘ex-post approach.
Ex-ante approach
In july 2020, we elicited qualitative spending plans for durables for the second half of 2020 and the level of informedness about the change in
VAT. Most consumers knew about the cut in VAT but only a subset of them knew about the return to normal rates in January 2021 (see Figure
1, panel B). Importantly, consumers planning to increase their durable consumption spending inthe second half of 2020 for reasons
unrelated to prices (eg. long-standing spending plans) are no better informed about the full VAT path than those that report price changes
‘asa reason for higher spending. These patterns make a reverse causality story ~ from planned shopping activity regardless of reason to
better informedness about the VAT policy ~ unlikely. Panel A of Figure 2 shows that, more generally, consumers that plan to buy more
durables, do so often for price-related reasons. Child-related transfers, by contrast play only a small role.
igure 1 The ex-ante approach
A) Reasons for increased durable spending plansAll households, July 2020 Households with children, July 2020
100
100
Percent
50
50
°
[ll Delayed demand [fj Planned spend [fl income gain
1) Low prices ‘20. J VAT change
B) Indentification: Informedness
1 Financial gain
High prices 21. Children bonus100
100
€
5,
3 80
8 g3
a
>
3
a) 37.71 58 56.88 Se:80,
5 >
Y 3
a 42.29 8
2 Bo
+ F
g
€
2 Zo
g Sk
2
° °
Not fully informed Fully informed ‘Other reasons Price changes
Knowledge about the VAT policy Stated reasons for increasing consumption
‘ores: Panel A: After the respondents answered the question about their durable spending plans, those that answered with an increase were
asked about their reasons for planning to do so. They were given eight reasons which they could evaluate ona four point intensity sale.
Panel shows the fractions of respondents thet chose the highest two answers on ths intensity scale, Pane! B,lf-hand side shows fraction of.
respondents that were informed about the full VAP path, Panel Bright hand sideshows share of lly informed for those survey
respondents that plan to inerease their rable consumption spending in the second half of 2020, split into those that selfreport price
changes and those that give other reasons, See paper for detail.
‘To establish our first main result, we spit survey participants into those that were informed about the complete VAT path and others. Our
argument is that only the former group has scope for an intertemporal substitution motive, while the later group perceives, at best, an
income effect. Comparing the spending plans of the two groups therefore allows us to identify, along the extensive margin, a lower bound,
forthe intertemporal substitution effect ofthe VAT poliey on planned durable spending,
We find the existence of statistically and economically significant VAT:induced intertemporal substitution in durable expenditures.
Specifically, the VAT policy makes households about 10 percentage points more likely to increase durable purchases relative tothe second
half of a normal year. By splitting our results along inflation expectations, we provide additional evidence that consumers engagt
intertemporal substitution,
Ex-post approach
In January of 2021, we asked survey participants about their realised durable consumption spending in euros during the second half of 2020.
‘We supplement the survey data for durables with scanner data from GIK, which cover euro spending on semi-durables and non-durables.
We achieve identification by separating survey respondents according to their retrospectively perceived pass-through of the VAT cut to
consumer prices (Figure 2) (see Montag Sagimuldina and Schnitzer 2020 for a documentation of pass-through for gasoline). Again, we rule
out reverse causality by shoving that perceived pass-through is the same for households that shop around looking for bargains and those
that do not.
Figure 2 The ex-post approach. Identification: perceived pass-through30
100
4
80
interval
64.81 64.81
20
60
2
40
1.43 1.45
10
0
1
=
€
&
8
3
7
8
8
a
c
&
$
3
3
Fy
3
8
@
Distribution of perceived VAT pass-through, percent
Believes in VAT pass-through (21%), percent
0
oP
PE EEA :
ee s s
se ss rs
Prices decreased by Y
‘Notes: Figure shows the distribution of perceived VAT pass-through (left panel), the fraction of respondents which perceive a pass-through of
equal to larger than 1 percent (middle panel), and their average perceived pass-through (right panel) by being a bargain hunter or not
fom the January 2021 Bundesbank Online Panel - Household survey. See paper for details
Consumers who do not perceive that after-tax prices changed have again no motive to act on the VAT policy. Therefore, by comparing the
spending behaviour of consumer groups with different levels of perceived VAT pass-through, we can identify the causal effect of the VAT
policy on consumption spending.
We find that the temporary VAT cut led to a substantial relative increase in durable spending, According to our preferred estimate,
households with @ high perceived pass-through spent about 36% more than those with low or no perceived pass-through. Similarly, we find
that semi- and non-durable spending was higher for households that perceived a high pass-through relative to other households by about
119% and 2%, respectively. That is, the VAT policy effect is increasing in the durability of the consumption good, consistent with a simple
Euler-equation argument. We also find that the VAT policy effect, in particular for more durable goods, increases over time and is maximal
right before the reversal ofthe VAT rate (Figure 3) (see MeKay and Wieland 2021b for similar effects from monetary policy). Ina back-ofthe-
envelope calculation, these micro estimates translate into an aggregate effect of €21 billion of additional durable spending and of €34 billion
of overall consumption spending due to the temporary VAT cut.
Figure 3 Time path of spending response1
€
o
Yo
eo
ES
8
Sol oS
12 .
3 et
3c
s
8
st
as
g
2 age ee
8a Ueno
o~ a7
a" |@------- ra
io -® Semi-durables -@ Non-durables
July-Aug Aug-Sep Sep-Oct Oct-Nov Nov-Dec
2020
Notes: Results based on OLS regressions using GfK scanner data, The OLS regressions have been pooled over two-month windows. The left-
hhand-side spending data on, respectively, semi-durables and non-durables have been transformed with the inverse hyperbolic sine
transformation. We code any answer with “perceived pass-through of s 0% as 0, and > 0% as 1 in the GfK data. Controls include gender, age,
education, employment status, having children, the households’ income level, and net wealth, as well as controls forthe federal state and
the municipality size the household lives in.
Heterogeneity
In the cross-section of consumers, we find that two not necessarily overlapping groups of consumers drive the durable spending response:
(2) bargain hunters ~ i.e households that self-report that they shop around or households that, in a survey experiment, turn out to be
particularly price-sensitive; and (2) younger households ina relatively weak financial situation, We also find no evidence that perceived
credit constraints of households or local previous exposure to Covid-19 matter. Finally, the stabilisation suecess ofthe temporary VAT cutis
also related to its simplicity (Andre etal. 2021, DAcunto etal. 2021). Its effect isnot concentrated in households that are particularly
financially literate or have long planning horizons for saving and consumption decisions. Hence, in contrast to unconventional monetary
policy which often relies on consumer sophistication (eg, Farhi and Werning 2019, Gabeix 2020, Woodford 2019 for the case of forward
sguidance), unconventional fiscal policy is successful in stimulating aggregate consumption spending because of its simplicity and salience,
consistent with the theoretical and empirical arguments in Bianchi:Vimercati etal (2021) and D'Acunto et al. (2022). Taken together, these
findings suggest that the temporary VAT cut not only had a positive stabilisation effect but also positive distributional implications consistent
with the idea that a VAT cut works in a progressive way.
Conclusion
The unexpected, temporary VAT cut in Germany in the second half of 2020 worked as a measure of unconventional fiscal poly. We show
that the poliey stimulated spending on durables and, to lesser extent, on semi-durable and on non-durable consumption goods. From a
distributional perspective, the temporary VAT cut worked in a progressive way. Young, low-net-wealth households reacted the most. This
reaction did not depend on measures of financial literacy and saving discipline. We do not take a stance on the optimality or even the
appropriateness ofthis policy measure. We do show, however, that, as suggested by Correia etal. (2013), an unexpected temporary VAT cut
operates indeed like conventional monetary poliey and can be an effective stabilisation tool when the ELB binds.
References
Andre, P,C Pizzinlli, C Roth, and J Wohlfart (2021), “Subjective models of the macroecon-omy: evidence from experts and a representative
sample”, mimeo, University of Copenha-gen.Bachmann, R, B Born, 0 Goldfayn-Frank, G Kocharkov, R Luetticke, and M Weber (2021), “A Temporary VAT Cut as Unconventional Fiscal
Policy", CEPR Discussion Paper 16690.
Bianchi-Vimereati, Riccardo, Martin $ Eichenbaum, and Joao Guerreiro (2021), “Fiscal policy at the zero lower bound without rational
expectations”, NBER Working Paper 29134.
Correia, 1, E Fathi, J P Nicolini, and P Teles (2013), “Unconventional fiscal policy at the zero bound’, American Economic Review 103(4): 1172
rau.
DAcunto, F, D Hoang, and M Weber (2018), “Unconventional fiscal policy", ABA Papers and Proceedings 108: 519-523.
DAcunto, F, D Hoang, and M Weber (20212), “Managing households expectations with un-conventional policies", Review of Financial Studies
(forthcoming).
DAcunto, F, D Hoang, and M Weber (20218), “Unconventional fiscal poliey to exit the COVID-19 crisis", VoxEU.org, § June.
DAcunto, F, D Hoang, M Palovita, and M Weber (2021), “Human frictions in the transmis-sion of economic policies", NBER Working Paper
20279.
Farhi, # and 1 Werning (2019), “Monetary policy, bounded rationality, and incomplete mar kets”, American Bconomic Review 109(11) 3887-
3928,
Gabaix, X (2020), ‘A behavioral New Keynesian model”, American Economic Review 110(8): 2271-2327.
Mekay, A and J Wieland (2021b), "Lumpy durable consumption demand and the limited ammunition of monetary policy’, Econometrica
(forthcoming)
Montag, F, A Sagimuldina, and M Schnitzer (2020), “VAT reduction as unconventional fiscal policy i
‘through in the fuel market’, VoxEU.org, 25 August.
‘Germany: Fast but heterogeneous pass-
‘Woodford, M (2019), “Monetary policy analysis when planning horizons are finite’, NBER Macroeconomics Annual 39(1): 1-50.
Price and sales effects of standard VAT rate changes: Evidence and implicatlo
unconventional fiscal policy
Buettner, Magzharova
voxeu coLumn / 27 oct 2020,
VAT reduction as unconventional fiseal
through in the fuel market
Montag, Sagimuina, Schnitzer
VoxEu coLumn / 25 ave 2020
icy in Germany: Fast but heterogeneous passUnconventional fiscal policy to exit the COVID-19 crisis
D’Acunto, Hoang, Weber
\VoXEU COLUMN / 8 JUN 2020
AuTHoRS
Ruediger Bachmann
Professor of Economics, Stepan Family College, Department of Economics, Univesity of Notre Dame
‘Benjamin Born
Research Director, Associate Professor of Macroeconomics, Research Director
(ga Goidtayn-Frank
Research Economist, Deutsche Bundesbank
Georgi Kocharakov
Assistant Professor in Economics, University of Konstanz
Ralph Luetticke
Assistant Professor, University College London
Michae! Weber
Associate Professor of Fin
Hewes
eywoRDs:
SHAREUnconventional fiscal policy to exit the COVID-I9 crisis
Francesco D'Acunte, Daniel Hoang, Michael Weber
{8 JUN 2020. COVID-I9 / MONETARY POLICY / TAXATION / COVID-19/ CORONAVIRUS / UNCONVENTIONAL FISCAL POLICY / FORWARD GUIDANCE / VAT
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