Recommendations & Conclusions
6 items
6
Conclusion
Fifteenth Report - Managing government …
Deferred
To deliver its remit, NS&I must balance the interests of savers by offering a fair return, and the interests of the taxpayer by minimising finance costs. At the same time, it must also maintain an appropriate competitive position in the retail savings market. When questioned on how it minimises the …
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To deliver its remit, NS&I must balance the interests of savers by offering a fair return, and the interests of the taxpayer by minimising finance costs. At the same time, it must also maintain an appropriate competitive position in the retail savings market. When questioned on how it minimises the cost of meeting its financing needs, NS&I told us it had several metrics to measure its performance, including its “efficiency ratio” which is the cost of NS&I managing the savings it holds. It told us that this was currently under “7p per £100 of investment”.9 NS&I explained that it also used a “Value Indicator” which compared the cost of borrowing through NS&I with the cost of selling gilts. NS&I told us that it measured, monitored and used the Value Indicator in all its decision making, but that the Treasury no longer held it accountable against this metric as the price of gilts is outside of NS&I’s control. The Treasury and NS&I have considered other metrics to replace the Value Indicator but have not yet identified a suitable alternative.10
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Government response AI summary
The government agrees with the implicit recommendation to improve performance measurement. It commits to examining international best practice and assessing quantitative and qualitative measures by Spring 2025, and will write to the Committee upon conclusion of this analysis.
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HM Treasury
8
Recommendation
Fifteenth Report - Managing government …
Deferred
In May 2023, the Competition and Markets Authority (CMA) provisionally found that five major banks broke competition laws on UK gilts. Each bank allegedly unlawfully shared competitively sensitive information relating to the buying and selling of UK government gilts. The alleged behaviour, which was identified by the CMA and potentially …
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In May 2023, the Competition and Markets Authority (CMA) provisionally found that five major banks broke competition laws on UK gilts. Each bank allegedly unlawfully shared competitively sensitive information relating to the buying and selling of UK government gilts. The alleged behaviour, which was identified by the CMA and potentially impacted the DMO’s gilt auctions, took place at varying times between 2009 and 2013. We asked the DMO how it ensured that buyers were not co-operating behind the scenes to manipulate its auctions and thereby disadvantage taxpayers. The DMO, which sells gilts directly to its primary dealers via bids it receives during auctions, explained that all its primary dealers, known as Gilt-edged Money Makers (GEMMs), were regulated organisations and manipulation and collusion was “illegal and against the law”.13
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Government response AI summary
The government accepts the implicit recommendation and commits to writing to the Committee with the requested information within two months of the CMA's investigation concluding, but the target implementation date is TBD due to the CMA's open-ended timeline.
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HM Treasury
9
Conclusion
Fifteenth Report - Managing government …
Deferred
The DMO stressed that it expected all GEMMs to “adhere 100%” to all regulations and the applicable laws, but because the DMO is not itself a regulator it cannot police the behaviour of the GEMMs. It added that GEMMs, which the DMO appointed, have “exclusive bidding rights at auctions” and …
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The DMO stressed that it expected all GEMMs to “adhere 100%” to all regulations and the applicable laws, but because the DMO is not itself a regulator it cannot police the behaviour of the GEMMs. It added that GEMMs, which the DMO appointed, have “exclusive bidding rights at auctions” and it only sold directly to the GEMMs. The DMO explained that the way it designed how and when it sold gilts, together with the auction process, “deliberately minimises the chance of manipulation or collusion.” This included holding auctions during times when the market is most active, making it more difficult for a single player to start manipulating auctions. The DMO stated that during an auction, GEMMs “submit their bids blindly” meaning bidders are “in direct competition with each other”.14 Despite these steps, the DMO accepted that it could not categorically say that manipulation or collusion has “never happened in the past or that it might not happen in the future”. When asked what changes it was making to its processes in light of the CMA’s investigation, the DMO told us it was “not obvious” that there was a fundamental flaw in the system and therefore no changes have actually been made.15
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Government response AI summary
The government agrees with the implicit recommendation and commits that HMT and DMO will write to the Committee with information within two months of the Competition and Market Authority’s investigation conclusion, deferring any further actions until then.
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HM Treasury
10
Conclusion
Fifteenth Report - Managing government …
Deferred
We asked the OBR whether any improvements could be made to government’s borrowing processes. The OBR expressed a desire for more information on the owners of UK gilts held overseas, which it said represented arounds 25% of all UK debt – the second highest in the G7. It explained that …
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We asked the OBR whether any improvements could be made to government’s borrowing processes. The OBR expressed a desire for more information on the owners of UK gilts held overseas, which it said represented arounds 25% of all UK debt – the second highest in the G7. It explained that foreign investors were “more fickle and more flighty than domestic investors” because they were less committed to holding UK gilts over the long-term.16 The OBR told us that compared to domestic investors, such as UK pension funds, foreign investors were more interested in “rates of return” and were more likely to switch to German or Japanese government bonds should the attractiveness of UK gilts fall. The OBR said that having a better understanding of the owners of UK debt held overseas would be advantageous from a “risk management perspective” because government will have a better sense of how sensitive these investors are to market changes.17
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Government response AI summary
The government claims the recommendation is implemented, stating it currently lacks visibility of beneficial gilt owners. However, it commits to reviewing sovereign bond ownership data from other countries to learn from their approaches.
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HM Treasury
11
Conclusion
Fifteenth Report - Managing government …
Deferred
We asked the Treasury how much it knew about the owners of UK debt held overseas. The Treasury recognised that it did not have a “very accurate picture” because gilts were a “traded commodity” and may be sold on. The DMO explained that it cannot know who the ultimate beneficial …
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We asked the Treasury how much it knew about the owners of UK debt held overseas. The Treasury recognised that it did not have a “very accurate picture” because gilts were a “traded commodity” and may be sold on. The DMO explained that it cannot know who the ultimate beneficial owner of any gilt is unless it is explicitly told because gilts can be sold multiple times to different investors. The DMO also disagreed with the OBR’s view 13 Q 71 14 Qq 41, 71 15 Qq 71, 73 16 Qq 5, 17 17 Qq 17, 18 Managing government borrowing 11 that overseas investors were the most volatile element of the investor base. The DMO told us that over the last 20 years, sterling had become much more of a “reserve currency”, accounting for around 5% to 6% of global reserves. It explained that this suggested that overseas central banks and other international organisations, such as life insurance companies, were more likely to hold UK gilts over the long-term. The DMO added that until recently, domestic pensions funds were always seen as the “ultimate buy-and-hold” part of the investor base. However, in the aftermath of the gilt market’s reaction to the government’s September 2022 Growth Plan announcement (also known as the “mini- budget”), the DMO told us that domestic pension funds arguably became the “more volatile portion of the investor base”. The DMO stressed that foreign investors were an important part of having a “diverse investor base” and their involvement in the UK gilt market “acts as a safety valve”, giving the DMO access to a wider range of investors.18 18 Qq 74–75 12 Managing government borrowing 2 Lessons learned and wider challenges Borrowing during the pandemic
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Government response AI summary
The government claims the recommendation is implemented, stating it currently lacks visibility of beneficial gilt owners. However, it commits to reviewing sovereign bond ownership data from other countries to learn from their approaches.
Read full response →
HM Treasury
16
Conclusion
Fifteenth Report - Managing government …
Deferred
Not only does the government face growing pressure to borrow more in the future, but it also needs to ensure it can repay its current debts. The DMO issues gilts of varying length, ranging from one to more than 50 years. The period between a gilt being first issued and …
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Not only does the government face growing pressure to borrow more in the future, but it also needs to ensure it can repay its current debts. The DMO issues gilts of varying length, ranging from one to more than 50 years. The period between a gilt being first issued and when the amount borrowed must be repaid to the original investor is called the redemption or maturity date. The NAO’s report highlighted that government gilt redemptions will peak in 2024–25, with £140 billion of gilts maturing.27 The DMO told us that some of the very short-dated gilts issued in 2020–21 during the pandemic were now starting to mature. The DMO also told us that the peak redemptions in 2024–25 will create a challenge for its “cash management function” in terms of needing to make sure that on any given redemption date, sufficient funds are available to repay the gilts. Close to a redemption, the DMO explained it will typically schedule an auction, thereby repaying maturing gilts by selling new ones. The DMO added that while the UK had a large number of redemptions to manage in the years to come, the amount was “much less” than some other major European countries.28
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Government response AI summary
The government agrees with the implicit recommendation to improve performance measurement. It commits to examining international best practice and assessing quantitative and qualitative measures by Spring 2025, and will write to the Committee upon conclusion of this analysis.
Read full response →
HM Treasury