In the passage you give us here, the winner of the auction becomes the loser in reality because he or she cannot make money on the bond that they bought.
The quote is saying that buyers at auction buy a bond mainly in order to resell it on the secondary market. The problem with this, it says, is that there is pretty much a set value for any given bond.
At an auction, the "winner" has to bid more than anyone else. This means the winner is offering to pay more than anyone else thought it was a good idea to pay.
Since bonds have a set value on the secondary market, the person who wins the auction may end up spending too much to get the bond and be unable to make much of a profit reselling it.
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