Imagining Security in the landscape of the financial collapse
When the “American Dream” is evoked by its popular promoters, the concept implies a promise of security whose strength derives from the ingenuity of the people and a nation of opportunity. The American Dream is, in the familiar context, a notion that unifies the successful American entrepreneur with the immigrant, just off the boat, who might work for him. It is a sense of security based on fortitude of the collective American imagination. But in the context of contemporary American capitalism, the “American Dream” is not simply a security of the American ingenuity, but also an imagined security by which a group of 21st Century bankers and politicians sold and bought a delusional confidence in the housing market. This imagined security was deliberately crafted by the managers of two of the largest economic institutions in the housing market - Fannie Mae and Freddie Mac – who used a creed of the American Dream to create a false sense of safety in packaged mortgage investments. These corporations were Government Sponsored Enterprises (GSEs), organizations that occupied an ambiguous position between public agency and private institution. Fannie and Freddie used this position to sell investments with what sounded like the backing of the Federal Government while simultaneously profiting from investment leverage in the same way as private bank.
Even though both institutions were officially made private by decree of Congress, investors had confidence that the government took such stake in their survival that it would never allow them to fail. This sense of security was imaginary because there was no law or contract by which the government was obligated to back the GSEs. Rather than guarantee the GSEs, politicians emphasized that the government had no responsibility to support the companies if they failed. The attitude of Congress towards Fannie and Freddie is evident in a speech by Congressman Barney Frank to the House Committee on Financial Services in 2003. The Chairman of the Committee, Frank maintained that while “investors take some comfort and want to lend them a little money and less interest rates, because they like this set of affiliations [with the government]…there is no guarantee, there is no explicit guarantee, there is no implicit guarantee, there is no wink-and-nod guarantee.” But despite this lack of a government guarantee on loans from Fannie Mae and Freddie Mac, the two companies were able to use their associations with the government in order to take leveraged loans at interest rates far below those of the market.
While federal officials did not want to be responsible for the potential of the GSEs to collapse, politicians did not want to distance themselves from the stated mission of the two companies either. Even though the companies were officially private institutions with their own economic interests, their managers maintained the rhetoric from their initial public incorporation. During the first decade of the 21st Century the companies created an advertising campaign that associated the function of Fannie and Freddie with the success of “the American Dream.” According to company claims, it was the business of Fannie and Freddie to fund low-income housing. But the link between GSE policy and affordable housing was complex. The companies operated by buying existing mortgages from the banks that loaned directly to homeowners and reselling these mortgages as packaged investments on a secondary market. The claim was that this secondary demand would decrease the costs of lending directly to consumers and the market would offer affordable mortgages to those who would otherwise be unable to purchase a home. To sell these claims of a complex but noble economic function, the managers of Fannie and Freddie argued that their success depended on as the success of the American Dream. This moral argument served a crucial political function: since the published charter of the companies was in line with the agenda of many in power, politicians could not object to the ambiguous politics of the companies themselves.
While those in charge at Fannie and Freddie claimed that the corporations forged stability in the mortgage market, many observers argued that their practices threatened the stability of the economy as a whole. The GSEs functioned by purchasing low rated mortgages - those with a high risk of default - from primary lenders and repackaging these debts as ‘secure’ investments. But analysts worried that without support from the government, these packages were in reality only as secure as the GSEs themselves. Although politicians had good reason for concern about the operation of the GSEs, speaking out against Fannie and Freddie would have been perceived as speaking out against their most vulnerable constituents – those without easy access to housing. Though observers in the Federal Government often voiced concern about the direction of the GSE business model, Fannie and Freddie’s promise of poor income housing stopped in their tracks any attempts to clarify the misleading practice of false security.
Maintaining the support of politicians was not the only purpose of making claims to the American Dream. The true targets of the Fannie and Freddie’s advertising were investors who financed loans to the companies. The rhetoric of “growing with the American Dream” served to define the how investors in the mortgage market understood uncertainty and risk. The notion of economic security elicited by images of a secure and livable home was a means of convincing investors of the security found in lending money to the GSEs operations. Even though many observers noted that the GSE model was susceptible to speculation bubbles and collapse, the companies were able to counter their critics with the imaginative power of the American mythology.
The literature published by Fannie and Freddie is best considered to be propaganda. Using linguistic and visual devices, the companies’ annual reports attempted to convince its audience of an economic claim to security by eliciting the imagery of a cliché of social security. In one sense, company documents made an economic argument that the investments provided by the GREs would continue to grow throughout the decade. Some of the support for this claim appealed to a financial logic: the reports suggested that pressures of limited supply and increasing demand would continue to drive the value of existing homes ever upwards. But going beyond such economic rational, the companies appealed to investors’ own sense of security by reminding them of their own homes. This type of argument by association is evident in the following paragraph that was printed in large letters that fill up a page in Fannie’s 2001 Annual Report:
“A house. The single most important purchase you’ll probably ever make. But the investment didn’t end with getting a mortgage and making those monthly payments. Making a house a home is a true American pastime. It’s become a weekend ritual right up there with Saturday afternoon soccer games and the Sunday Paper. It’s the Extra touch that the great wallpaper you finally found adds to the living room. It’s a load of mulch and fertilizer in the trunk of the car, and the hours devoted to getting the backyard to look like the outfield of Yankee Stadium on opening day. It’s the gas grill you and your son assembled out there on the deck…”
Appealing to investor’s hopes and dreams as well as to their rational economic minds, this propaganda was a deliberate attempt to pit emotion against reason. With imagery of a warm and sunny home, the companies led their investors to take a sensation of safety for actual economic security.
Despite the imagery of the American Dream, those in charge of the GSEs ran the organizations not as advocates for low-income housing, but as companies seeking a profit. While they weaved an image of stability from the ideology of American living, the Officers of Fannie and Freddie were also cooking the books to exaggerate their success to potential investors. Both companies repeatedly over reported incomes and returns from 1998-2003, and Fannie did not even file an Annual Report in 2004 and 2005. These actions violated market regulations, but the infractions were excused by the Exchange Commission of the New York Stock Exchange in 2005. Without releasing the real data about their operations, the corporations systematically misled investors and stakeholders in the companies as well as the US Government. These practices worked in the first half of the decade as speculators continued to drive up the value of existing homes. But when the market value of housing too far exceeded its true or equilibrium value, the real-estate bubble burst along with the imagined security dreamed by propagandists at Fannie and Freddie. False confidence in the GSEs contributed to the collapse of many private banks beginning with Bear Sterns in March 2008. Ultimately, the turmoil in the housing market led to the complete collapse of both of the organizations in 2008. By that time, the GSEs owned 90% of subprime mortgages and 50% of the total mortgage market, and the government had no choice but to bail out the housing giants. In the end, the imagined security created by propaganda of the American Dream made Fannie and Freddie big enough that the false promise had to be backed up by real government action.
The story of Fannie and Freddie’s collapse is an illustrative account of how a group of American bankers sold a false sense of security by playing into the popular notion of the “American Dream.” But this particular failure of false confidence was only part of the larger Financial Collapse of 2008. While growing with the dream is a good demonstration of the type of economic behavior that caused the crash, the impact of Fannie and Freddie was not the only force driving toward ruin. The literature published by the companies in the first half of the Decade is amusing to read with knowledge of their collapse just a few years later. But ironic as this collapse of the American Dream might sound to the present observer, it is just one vignette in a larger comedy of economic history.
What the salesman at Fannie and Freddie did not account for in their appeal to the American Dream is that those who dream also have nightmares. An imagined security like that crafted by the GSEs can last only as long as everyone remains faithful to the fantasy. And when the confidence in a false security erodes, the imagination gives way to the most grotesque of fears. This is not a dilemma of financial technology. The problem is not simply the structure of capitalism, nor is it confined to the nature of man. Rather, the erosion of false confidence is an unavoidable consequence of an economic relation that dreams up securities, that imagines assurances and that fabricates a social foundation from the false hope of economic success. As long as men imagine economic well being and security, they will never escape events like the current financial collapse. Even though this story will soon be a “ghost of the past generations,” as long as we believe in a dreamed American security, such ghosts will forever “weigh like nightmares upon the brains of the living.”
But making sense of the failure of these government sponsored enterprises, as well as the implosion of the economy as a whole, requires a theoretical understanding of how security and stability are established in a market society. By examining the literature of Fannie and Freddie in the context of their economic histories, we can understand how false promises were bought for years by investors, and why politicians ultimately went back on their promises and bailed the companies out of ruin. Through a dissection of the creed at Fannie and Freddie and an analysis of the bad dreams that led to the collapse of 2008, this study will elucidate the way that security is sold in a modern marketplace. By integrating this study in the literature of economic and political relations, we can conceive of how similar imagined securities might underlie our confidence not just in the economic system, but also in the security of the modern liberal state.
Although discussion of the current financial collapse has reignited critique of free market capitalism, making theoretical sense of the crisis requires a departure from the ordinary view of the market as primary and the government as secondary in the organization of society. Part of the reason that GSEs were able to dream up a false security was that the companies did not fit well into the typical notions of the free market and government regulation. This study will attempt to formulate a theory that can explain how false promises and securities propagate in the economic system, and why these promises are essential to in a market society. Although this study depicts imagined security as a threat to economic stability, is possible that the exercise will convince us that “dreaming” has a more central role in keeping society stable than the real social relation ever has.