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Ending “Too Big to Fail”:
a Transatlantic Perspective
Florence School of Banking & Finance – Online seminar
Wilson Ervin
September 2017
This document and the information contained therein may not be reproduced or otherwise shared without the written consent of
the author. The views contained in this document and presentation reflect those of the author.
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1. A brief taxonomy of the Crisis
2. Fixing what broke down
3. Making solutions effective?
4. US and EU – a comparison
5. Where are we now?
Today
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A Taxonomy: Three Phases of the “GFC”
0
20
40
60
80
100
Dec-06 Dec-07 Dec-08 Dec-09
Phase 1:
Asset shock
Phase 2
Systemic Crisis
US
Equity V
ola
tilit
y (
VIX
)
1. An asset class crisis (mortgages, esp. USA)
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0
20
40
60
80
100
Dec-06 Dec-07 Dec-08 Dec-09
Phase 1:
Asset shock
Phase 2
Lehman fails
1. An asset class crisis (mortgages, esp. USA)
A Taxonomy: Three Phases of the “GFC”
Markets hit fear levels unseen since the 1930s
Systemic Crisis
US
Equity V
ola
tilit
y (
VIX
)
2. Wall St fails – Systemic risk dials go to “eleven”
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Phase 3 of the GFC
“Core” (DE, NE) survive crisis okay
Phase 1 & 2 less stressful than
many countries
Post-crisis markets perform okay
Italy
Bank
Gov’t
#3 Euro Crisis
#1
#2
Bank senior
Gov’t
Netherlands #1
#2
Key Policies:
ECB: “whatever it takes”
BRRD & SSM –disentangle banks
& sovereigns: unwind “doom loop”
“Periphery”: crisis recurs 2011-12
Yields spike in IT/ ES / PT/ GR
Periphery banks rely on local gov’t -
and vice-versa (“doom loop”)
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Basel 2.5, Basel 3, Basel 4 . . .
No Basel
Leverage Rules
Central Clearing
OTC transparency
New Securities Rules
Radical transparency
Stop short selling / CDS
Procyclicality
Core Capital
Hybrid capital
Resolution Funds
Coco’s
Resolution / Bail-in
Volcker Rule
Macro-prudential
Systemic Regulation
Regulatory Consolidation
Consumer Protection
Compensation Reform
Bonus Taxes, Bonus Caps
Deferrals, Clawbacks
Liquidity Rules
Stop Rehypothecation
Repo Reform
Money Market reform
Intrusive supervision
Vickers / Liikanen
Ring-fencing
National firewalls
(IHC/IPU)
Glass – Steagall
Subsidiarization
Narrow Banking
Size curbs – break ‘em up
Board Governance
Living Wills
Bank Taxes
Transaction Taxes
More Mark-to-market
. . . less Mark to market
Addressing the problem of ‘too big to fail’ is
the next central step in the reform program
- Mario Draghi
If the crisis has a single lesson, it is that the
‘too big to fail’ problem must be solved
- Ben Bernanke
but one is central Many reforms proposed…
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• How can we do
that?
• What would really
solve TBTF?
• Can it be solved?
But…
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How to solve TBTF? Some of the proposals
1. Better regulation; intervene early
2. Hard-nosed principles – let ‘em fail! no bail-outs!
3. Living Wills
4. Forced M&A/ P&A
5. Mutual aid strategies?
6. Good-bank / bad bank strategies
7. Break up the big banks?
8. «Narrow» or Utility Banking?
9. Something else?
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Old Balance Sheet
$600 bn assets
$430 bn “franchise” liabilities (deposits, swaps, payables)
$120bn senior debt
$25bn preferred & sub debt
$25bn equity
Borrow & adapt well-known tool (“Chapter 11 for banks”)
A single-party, liability-based recapitalization
No need for a merger partner
Accelerated timing to address runs & market concern
Old Balance Sheet New Balance Sheet
$600 bn assets $575 bn (i.e. $25 bn loss)
$430 bn “franchise” liabilities No change – remains at par (deposits, swaps, payables)
$120bn senior debt 15% new equity (85% unch)
$25bn preferred & sub debt new equity
$25bn equity write-off or warrants
Developing a new tool: “Bail-in”
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Lowers Contagion: Protects retail clients - reduced pressure for “runs”
No impact on counterparties or key market infrastructure
Preserves value – avoids fire sales
Bail-in provides a credible and consistent solution for TBTF
Builds on a well tested regime - Chapter 11 style “pre-pack” workout
Can address single failures - and replicable for broader systemic events
Less Pressure on Financial System:
Creates new equity where needed
Doesn’t “push the problem” to other banks (forced mergers, mutual
aid)
Doesn’t impair sovereign credit
Implications of a Bail-in Regime
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The road(s) to
Implementing “Bail-in”
Europe | USA
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Bail-in Implementation - Considerations
USA
• Single, large jurisdiction
• Toxic Politics of TARP
• Long history of FDIC resolutions
• Chapter 11 recaps highly familiar
• Well developed capital markets
• Holding company structure, with
significant LTD financing
EU
• Complex, multi-state jurisdiction
• Politics complex; national variation
• Historic expectation of state aid
• SRB & SSM newly established
• No common deposit insurance (yet)
• Bank finance >>capital markets
• Heterogenous bank structures;
emphasis on universal banking.
Dodd-Frank «Title 2» (2010) BRRD (2014; in force 2016)
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Bail-in: Implementation Milestones
Bank RRD &
SRM passed
2010
2011
2012
2013
2014
2015
2016
SRR bridge tool TBTF Expert
Commission:
10% Equity +
9% CoCos
BIO, FINMA
“SPE Bail-in”
ICB
(“Vickers”)
Ring Fence &
Bail-in Key Attributes
Royal assent
for Bail-in
Nu
me
rou
s p
olic
y e
ve
nts
at th
e n
atio
na
l le
ve
l
New TBTF:
28.6% TLAC BRRD &
SRB go live
[Dodd
Frank]
FDIC adopts
SPE Bail-in
TLAC
consult
Swap Protocol
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Implementing Bail-in (2013)
“In short, the US authorities have the technology – via Title II of
Dodd Frank; . . . most US banks are . . organised in way that lends
them to top-down resolution on a group-wide basis.
I don’t mean it would be completely smooth right now; it would be
smoother in a year or two as more progress is made. But, in
extremis, it could be done now.
Europe has not reached the same point, but contrary to some
commentary is not far behind.”
- Paul Tucker – Head of FSB Resolution Group
October 12, 2013
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EU resolution - A major shift to private
capital post crisis
Post 2010 Loss-sharing / Bail-in events
“A bail-in itself is not a problem: it is the lack of ex ante rules known to all
parties and the lack of capital buffers ... that may make a bail-in a disorderly
event…[and] gives the impression of an ad hoc approach…”
- Mario Draghi, post Cyprus News Conference
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Solving TBTF - The Good Part
1. Ex Ante Rules: BRRD and Dodd Frank and now fully in force
- Resolution Plans well advanced (depends on country)
- ISDA protocol in place to stop derivatives unwind / runs
Roughly 70% of the Western G-SIBs have crossed the TBTF Rubicon
Scale of capital resources on call already larger than 2008 needs
~$400bn
European
GLAC
b) UK: Avg. GSIB at 24% TLAC today
c) Germany: statutory change. G-SIB at 34% TLAC
d) Switzerland: TLAC ~30% of RWA today
2. Capital Buffers (TLAC) resourcing building out rapidly
a) USA: a «Trillion Dollar Wall» in place today; markets fully
adapted
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Solving TBTF - The Challenges
1. USA: Politics - potential repeal of Title 2
• RRP adaptation to Title 1 has many positive elements, but also:
o Banks could fail much earlier (RLEN/RCEN triggers)
o Liquidation strategies more likely. Implications?
• Federal Reserve liquidity constraints
2. EU: Uncertainty & Complexity. Rules (mostly) require
Bail-in, but . . .
• MREL not fully in place /usable in many countries
• Local politics in some countries
• BRRD loopholes?
• SRB execution capacity build-out ?
• Liquidity? Eurozone challenges?
3. Global Ring-fencing pressures
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Bail-in and future crises
Eliminating asset shock crises is hard!
And can lead to risk build up– (per Minsky)
Systemic crises – when financial system begins to
unravel – are far more destructive
Bail-in: a key new tool to fight Crises
FSB Key Attributes aligned US/EU rules
“Single point of control” simplifies execution
Adds resilience and avoids fire sale loop
Removes government burden (& helps address bank-
sovereign doom loop)
Replicable and consistent
Rapid global progress: Have crossed the “TBTF Rubicon” in many
countries;
EU moving quickly, but many countries not yet over
Politics, Internal TLAC & Liquidity remain serious concerns
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Commentary
Q&A Session
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