The Financial Stability Board is set to focus on tougher rules for too-big-to-fail organizations operating in the “shadow-banking sector” to prevent another global economic crisis, its chairman Mario Draghi said.
Systemically important financial institutions, or SIFIs, “don’t reside only within the banking sector,” Draghi said in a Nov. 5 interview in Ancona, Italy. Over the next two years, the FSB will focus on “the progressive enlargement of what we call the regulatory perimeter to include the most important segments” of the “shadow financial sector.”
Leaders from the Group of 20 meeting today in Seoul will review possible measures by the FSB and the Basel Committee on Banking Supervision to subject too-big-to-fail organizations to tougher rules. Leaders are expected to ask the FSB and the Basel committee to continue their work on defining which institutions fall into this category and what additional requirements should be placed on them.
Tougher regulations for the shadow industry — which includes securities brokers, hedge funds and money-market funds — aim to prevent a repeat of the turmoil that followed the collapse of Lehman Brothers Holdings Inc. The sector’s liabilities totaled about $16 trillion in the first three months of 2010, according to a staff report published by the Federal Reserve Bank of New York in July.
Absorbing Losses
The FSB wants “globally active” SIFIs to “have what we call a great loss-absorbency capacity, greater than what is foreseen by the minimum-capital standards” agreed on by the Basel committee, Draghi said. The committee agreed in September to more than triple the highest-quality capital that banks must hold, a recommendation that G-20 leaders are expected to approve at the Seoul summit.
“How this greater capacity is going to be addressed by different institutions will depend on what these institutions are, what is their history,” said Draghi, 63.
Global policy makers need to make sure that banks adjusting to tighter rules on capital don’t build up risks in the shadow banking system, International Monetary Fund economists said in a report this month. Banks “may shift some activities to the unregulated shadow banking sector or their businesses to jurisdictions with less onerous regulatory requirements,” the IMF staff said.
The Basel committee said in a statement last month that it plans to agree on provisional criteria for “assessing the systemic importance of financial institutions at the global level” by the end of 2010.
Identifying the Players
“On the basis of quality and quantity of the indicators provided by the Basel committee, on the basis of these indicators and only on the basis of these indicators, the FSB will identify together with national authorities the globally active SIFIs,” said Draghi, who is also Bank of Italy governor.
The FSB hopes to complete the process by the end of 2011, Draghi told journalists last month in Korea.
The FSB and the Basel committee are considering including insurers and clearing houses in measures to safeguard the world economy from crises sparked by SIFIs, two people close to the negotiations said. They declined to be identified as the talks are private.
“Draghi is right to say that systemically important financial institutions don’t reside only within the banking sector,” said Andrew Baker, chief executive officer of the Alternative Investment Management Association, which represents the hedge-fund industry. AIMA “would note that the UK FSA’s view is that at the moment, hedge funds do not present ‘a potentially destabilizing credit counterparty risk,’” he said by e-mail, referring to a report published by the U.K Financial Services Authority in February.
Proposals
The FSB and the Basel committee are developing a “well- integrated approach” to SIFIs that may include capital surcharges, bonds which convert to equity when a firm is in distress, or mandatory losses for investors in pre-agreed situations, the committee said in a statement in September.
Draghi said instruments to achieve greater loss absorbency will “be discussed by the different jurisdictions.” Their decisions will be subject to a “well-thought” out peer-review process within the Basel-based FSB, he said.
“All these jurisdictions having SIFIs should have a supervisory system in place capable of actually undertaking effective supervision at the degree of complexity that SIFIs have today,” said Draghi, a former vice chairman at Goldman Sachs Group Inc.
Unwinding Mechanism
G-20 leaders in Seoul are expected to reiterate calls for a mechanism to wind down too-big-to-fail institutions when they become insolvent, without causing wider damage to the financial industry or costing the taxpayer.
Systemically important institutions “have to be resolvable in an orderly way, mainly without disruption of the most important sectors of financial markets,” Draghi said. “They have to be resolvable without the use of public money.”
The G-20 set up the FSB last year to oversee the work of groups setting international standards to strengthen global financial regulation after the worst financial crisis since the Great Depression. It replaced the Financial Stability Forum, a think tank with no formal role that was created in 1999 after the Asian financial crisis. The group’s members include national regulators from 24 countries, including all members of the G-20.
“The G20 gave great evidence of being the most important forum for global coordination and global economic policy,” Draghi said. Financial regulation is “the area where this international coordination has made the greatest progress.”
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