By Peter Boone and Simon Johnson
When Mr. Trichet (head of the European Central Bank,
ECB) and Mr.
Strauss-Kahn (head of the International Monetary Fund, IMF) rushed to
Berlin this week to meet Prime Minister Angela Merkel and the German
parliament, the moment was eerily reminiscent of September 2008 – when
Hank Paulson stormed up to the US Congress, demanding for $700bn in
relief for the largest US banks. Remember the aftermath of that
debacle: despite the Treasury argument that this would be enough, much
more money was eventually needed, and Mr. Paulson left office a few
months later under a cloud.
The problem this time is bigger. It is not
only about banks, it is
about the essence of the eurozone, and the political survival of all
the public figures responsible. If Mr. Trichet and Mr.
Strauss-Kahn
were honest, they would admit to Ms. Merkel “we messed up – more than a
decade ago, when we were governor of the Banque de France and French
finance minister, respectively”. These two founders of the
European
unity dream helped set rules for the eurozone which, by their nature,
have caused small flaws to turn into great dangers.
The underlying problem is the rule for printing
money: in the
eurozone, any government can finance itself by issuing bonds directly
(or indirectly) to commercial banks, and then having those banks “repo”
them (i.e., borrow using these bonds as collateral) at the ECB in
return for fresh euros. The commercial banks make a profit
because the
ECB charges them very little for those loans, while the governments get
the money – and can thus finance larger budget deficits. The
problem
is that eventually that government has to pay back its debt or, more
modestly, at least stabilize its public debt levels.
This same structure directly distorts the incentives
of commercial
banks: they have a backstop at the ECB, which is the “lender of
last
resort”; and the ECB and European Union (EU) put a great deal of
pressure on each nation to bail out commercial banks in trouble.
When
a country joins the eurozone, its banks win access to a large amount of
cheap financing, along with the expectation they will be bailed out
when they make mistakes. This, in turn, enables the banks to
greatly
expand their balance sheets, ploughing into domestic real estate,
overseas expansion, or crazy junk products issued by Goldman
Sachs.
Just think of Ireland and Spain, where the banks took on massive loans
that are now sinking the country.
Given the eurozone provides easy access to cheap
money, it is no
wonder that many more nations want to join. No wonder also that
it
blew up. Nations with profligate governments or weak financial
systems
had a bonanza. They essentially borrowed funds from the less
profligate elsewhere in the eurozone, backed by the ECB. The
Germans
were relatively austere; the periphery enjoyed the boom.
But now we
have moved past the boom, and someone in Greece, Portugal, Spain,
Ireland and perhaps Italy has to repay something – or at least stop
borrowing without constraint. So Mr. Trichet and Mr. Strauss-Kahn
go,
cap in hand, to ask Germany for further assistance.
There are three possible scenarios. First, the
ECB may be allowed
to really let loose with “liquidity” – and somehow buy up all the bonds
of troubled eurozone nations. But this is exactly the process
that
always and everywhere brings about high inflation. The Germans
would
fight hard against such a policy, although it would prevent default.
Second, officials still hope that bond yields for
weaker governments
widen but then stabilize. This is bad news for troubled eurozone
countries, but they manage to avoid default. The rest of the
world
grows by enough to pull up even the European “Club Med +
Ireland”.
Call this the trickle down scenario or just a miracle.
Most likely, the situation is about to turn much
worse and a third
scenario unfolds. The nightmare for Europe is not at this point
about
Greece or Portugal – it is all about Italian and Spanish bond
yields.
This week those yields are rising quickly from low levels, while German
yields are falling – so this spread is widening sharply. The
yields
for Spain – for example – are rising because hitherto inattentive
investors, who always thought these bonds were nearly as safe as cash,
suddenly realize there are reasonable scenarios where those bonds could
fall sharply in value or even possibly default. Given that Spain
has
20% unemployment, an uncompetitive exchange rate, a great deal of
public debt, and a reported government deficit of 11.2 percent
(compared with headline numbers for Greece at 13.6 percent and Portugal
at 9.4 percent), everyone now asks: Does a 5% yield on Spain’s
ten
year bonds justify the risk? The market is increasingly taking
the
view that the answer is no, at least for now. So, we can
anticipate
Spanish (and Italian) yields will keep rising. In turn, this
causes
other asset prices to fall in those nations, thus worsening their
banking systems, and hence leading to credit contraction and capital
flight. It is a dismal prognosis.
Then it gets worse. As rates rise, traditional
investors in euro
zone bonds, which are pension funds and commercial banks, will refuse
to take more. There will be no buyers in the market and
governments
will not be able to roll over debts. We saw the first glimpse of
this
on Tuesday, when both Spanish and Irish short term debt auctions
virtually failed. Once this happens more broadly, the problem
will be
too big for even Mr. Trichet or Ms. Merkel to solve. The euro
zone
will be at risk of massive collapse.
If this awful but unfortunately plausible scenario
comes about,
there is a clear solution – unfortunately, it is also anathema to Mr.
Trichet and Ms. Merkel, and thus unlikely to be discussed seriously
until it is too late. This is the standard package that comes to
all
emerging markets in crisis: a very sharp fall in the euro,
restructuring of euro zone fiscal/monetary rules to make them
compatible with financial stability, and massive external liquidity
support – not because Europe has an external payments problem, but
because this is the only way to provide credible budget support that
softens the blow of the needed austerity programs.
The liquidity support involved would be large:
if we assume that
roughly three years of sovereign debt repayments should be fully backed
– and it takes that kind of commitment to break such negative sentiment
– then approximately $1 trillion would be needed to backstop Greece,
Portugal, Spain and Italy. It may be that more funds are
eventually
needed – but in any case, the amounts would be less than the total
reserves of China. These amounts would also be reduced as the
euro
falls; it could be heading back to well under $1 per euro, which is
where it stood one decade ago.
External financial support would only make sense if
combined with
key structural reforms, including an end to the repo window at the
ECB. As former UBS banker Al Breach recently argued, the ECB
could
instead issue bonds to all nations which would then be used
subsequently for monetary operations – every central needs a way to add
or subtract liquidity from the financial system. These bonds
would
need to be backed by a small “euro zone” tax, thus making the ECB more
like other central banks around the world. It would no longer
accept
bonds of “regional governments” in the union as collateral, and instead
would buy and sell “eurozone” bonds. These new eurozone bonds
would
also offer a way for governments to roll over some of their existing
debts.
If the eurozone does need this package, it cannot be
managed under a
“business as usual” model. The funds would need to come from the
G20,
and extremely tough decisions over fiscal and monetary policy need to
be handled in a fair and reasonable manner. Someone needs to be
in
charge on behalf of Europe (would this be the European Commission, or
Ms. Merkel and the German government?) and someone needs to represent
the G20.
By far the most natural G20 partner to manage this
process is –
despite all its baggage – the IMF, but there’s a serious problem.
Mr.
Strauss-Kahn, the current head of the IMF today, very much wants to
become the next President of France. There is no way for the G20
to
provide funding that he would guide – he has an obvious and unavoidable
conflict of interest, and no incentive to make the tough decisions
today that are required to sort out the euro zone.
Mr. Strauss-Kahn should resign and a respected
financial leader of a
relatively independent country should take charge at the IMF. One
potential choice would be Mark Carney, the current Governor of the Bank
of Canada. Or, if the G20 agrees – finally – that it is
time to phase
out the leading role of the G7 (which has not done well of late),
Montek Ahluwalia of India would be an outstanding candidate.
An edited version of this post appeared this
morning on the NYT’s Economix; it is used here with
permission. If you would like to reproduce the entire post,
please contact the New York Times.
What happened to the global economy and what we can do about it
The Role of Government
By James Kwak
Last week Simon gave a talk sponsored by Larry Lessig’s center
at
Harvard. Afterward there was a dinner and then another
question-and-answer session. Jedediah Purdy (another person to write a
book while at Yale Law School; he is now a professor at Duke’s
law
school) asked a question that I have rephrased as follows (the words
are mine, not Purdy’s; I may have also distorted his original question
so much that it is also mine):
“You’ve criticized the government for withdrawing from
the economic and particularly financial sphere and allowing private
sector actors to do whatever they wanted. Do you think the government
should simply act so as to correct the imperfections in free markets?
Or do you see a positive role for government in determining what kind
of an economy we should have?”
I think it’s noteworthy that the
people
you would probably consider the most outspoken critics of Washington
and its capture by free market ideology in recent decades — Joseph
Stiglitz, Simon and I, Yves Smith, etc. — take pains to insist that we
are all, in fact, in favor of free markets. (It’s a caveat I’ve made in
several interviews.) The usual argument is that markets have failings —
due to information asymmetries, externalities, the works — and that
government policy should correct for those failings, instead of
pretending that they don’t exist, à la Alan Greenspan. The
conceptual
model is that the government policies should exactly correct for those
market problems — for example, imposing carbon taxes that exactly
account for the externalities of carbon emissions — and then get out of
the way.
Dean Baker makes an observation in his book, False Profits: Recovering from the Bubble Economy,
in
a different context, that I think reflects the same issue.
Discussing the political debate over the early 2009 stimulus package,
he writes (p. 109):
“President Obama never gave the people of the United
States the basic economics lesson they badly needed to understand the
rationale for the stimulus. In a country that had been conditioned by
both parties and the media to think that deficits are always bad, the
idea that the government would deliberately run very large budget
deficits didn’t make sense to most people.”
What lessons are we learning from this crisis and recession?
So far,
the lessons we are learning, if any, are modest, and are ones that many
people (just not those in power) already knew, having to do with
incentive structures under limited information, the distorting impact
of implicit government guarantees, the limits of a disclosure-based
regulatory regime, the problem of regulatory capture, etc. The thinking
is that we’ll modify the system to take these factors into account, and
then the magic economic machine will go on ticking. There don’t seem to
be any big lessons.
What would such bigger lessons be? Purdy floated the idea that
the
government should promote equality of opportunity. “Doesn’t it do that
already?” you might ask. It makes a small effort via the public
education system, but I believe even the most outspoken advocates of
public schools would acknowledge that they currently do little to
correct for the massive inequalities in starting points across our
society. For the most part, our government does little to level the
playing field, we have low levels of social mobility as as result,* and
our elected politicians are fine with that.
I spoke to Purdy after the event and he thought the strongest
argument against a positive role of government is “the competence
issue.” After all, Simon and I just wrote a book about how regulators
and politicians became intellectually captured by a single industry; if
that’s your basic view of the government, do you really want the
government deciding what the economic goals of society should be? So on
a practical level, most reformers who favor a more active governmental
role usually limit the government to correcting known problems with the
free market. That’s the conservative position, in the sense of Edmund
Burke, probably my favorite conservative of all time. But it’s not
terribly satisfying.
* For example:
“By international standards, the United States has an unusually low
level of intergenerational mobility: our parents’ income is highly
predictive of our incomes as adults. Intergenerational mobility in the
United States is lower than in France, Germany, Sweden, Canada,
Finland, Norway and Denmark. Among high-income countries for which
comparable estimates are available, only the United Kingdom had a lower
rate of mobility than the United States.”