Hostname: page-component-586b7cd67f-rdxmf Total loading time: 0 Render date: 2024-11-25T19:54:19.589Z Has data issue: false hasContentIssue false

Resolving the regulator's dilemma: international coordination of banking regulations

Published online by Cambridge University Press:  22 May 2009

Ethan B. Kapstein
Affiliation:
John M. Olin Research Associate at the Center for International Affairs, Harvard University, Cambridge, Massachusetts.
Get access

Abstract

Since the early 1970s, bankers have developed a host of new financial instruments and practices. These innovations have altered the nature of banking, and this in turn has complicated the task of banking regulation. National regulations have become largely ineffective in monitoring the safety and soundness of global banks. The resulting market changes and the growth of knowledge about the risks facing the international financial system have prompted governments to hold multilateral discussions regarding banking regulation. However, the task of international regulation has been compromised by the desire of states to attract foreign and domestic investment to the financial sector. Since states wish to create or maintain competitive banking institutions, they have often deregulated in order to provide banks with a cost advantage in the international marketplace. This “competitive deregulation” undermines collaborative efforts.

Under the leadership of the United States and Great Britain, a multilateral agreement on bank capital standards was reached in December 1987. This agreement suggests that the interplay of market factors, consensual knowledge, and leadership by powerful states can lead to international policy coordination. The article describes the multilateral negotiations that led to this banking accord.

Type
Articles
Copyright
Copyright © The IO Foundation 1989

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

1. Imagine two banks, A and B, each of which holds $100 in assets. Bank A has $5 in capital, and Bank B has $2.50. If each bank's shareholders demand a return of 50 percent, Bank A will have to earn $2.50 on its assets, but Bank B will only have to earn $1.25. Thus, the highly leveraged Bank B can charge less than Bank A for its services and still earn shareholders the same return.

2. For an extended study that focuses on these three factors, see Odell, John, U.S. International Monetary Policy (Princeton, N.J.: Princeton University Press, 1982)CrossRefGoogle Scholar.

3. Cooper, Richard N., The Economics of Interdependence (New York: McGraw-Hill, 1968)Google Scholar.

4. See Cooper, Kerry and Fraser, Donald, Banking Deregulation and the New Competition in Financial Services (Cambridge, Mass.: Ballinger, 1984)Google Scholar.

5. For the best overview of the issues, see Pecchioli, R. M., The Internationalisation of Banking (Paris: OECD, 1983)Google Scholar.

6. For a case study of one bank's doomed expansion, see Spero, Joan, The Failure of the Franklin National Bank (New York: Columbia University Press, 1980)Google Scholar.

7. “The Regulators,” Euromoney, April 1987, p. 104.

8. On the German and Japanese banking systems, see Spindler, Andrew, The Politics of International Credit (Washington, D.C.: Brookings Institution, 1984Google Scholar). On the American system, see Litan, Robert, What Should Banks Do? (Washington, D.C.: Brookings Institution, 1987)Google Scholar.

9. Melloan, George. “Global Bank Regulation Fans a New Debate,” Wall Street Journal, 15 03 1988, p. 35Google Scholar.

10. Office of the Comptroller of the Currency (OCC), Foreign Acquisitions of U.S. Banks (Richmond, Va.: Robert Dame, 1981), pp. 465–66Google Scholar.

11. Odell, , U.S. International Monetary Policy, p. 369Google Scholar.

12. Volcker, Paul and Regan, Donald, “Improving International Bank Capital Standards,” 30 05 1984Google Scholar, mimeographed; and telephone interviews with officials of the Federal Reserve Board, Washington, D.C., 01 and February 1988Google Scholar.

13. Pecchioli, , Internationalisation of Banking, p. 105Google Scholar.

14. Ibid.

15. Dean, John and Giddy, Ian, Averting International Banking Crises (New York: New York University Business School, 1981), p. 10Google Scholar.

16. I thank an anonymous reviewer for stressing this point.

17. On the Standing Committee, see Spero, , Failure, pp. 159–60Google Scholar; Bryant, Ralph, International Financial Intermediation (Washington, D.C.: Brookings Institution, 1988), p. 145Google Scholar; General Accounting Office (GAO), International Banking (Washington, D.C.: GPO, 01 1986Google Scholar); and Grant, Charles, “Can the Cooke Committee Stand the Heat?” Euromoney, 10 1982, pp. 3945Google Scholar.

18. Adapted from Dean, and Giddy, , Averting International Banking Crises, p. 12Google Scholar. On the Concordat, see Pecchioli, , Internationalisation of Banking, p. 106Google Scholar; and Cohen, Benjamin J., In Whose Interest? (New Haven, Conn.: Yale University Press, 1986), p. 304Google Scholar.

19. For a detailed critique of the Concordat, see Dale, Richard, The Regulation of International Banking (Cambridge: Woodhead-Faulkner, 1984), pp. 174–76Google Scholar.

20. Grubel, Herbert G., A Proposal for the Establishment of an International Deposit Insurance Corporation, Princeton Essays in International Finance, no. 133, 06 1979Google Scholar.

21. Kindleberger, Charles, The World in Depression: 1929–1939 (Berkeley: University of California Press, 1973)Google Scholar.

22. See Krasner, Stephen D., “Structural Causes and Regime Consequences,” in Krasner, Stephen D., ed., International Regimes (Ithaca, N.Y.: Cornell University Press, 1983Google Scholar). Haas's, definition is cited in Rothstein, Robert L., “Consensual Knowledge and International Collaboration,” International Organization 38 (Autumn 1984), p. 736Google Scholar.

23. Haas, Ernst, “Why Collaborate?World Politics 32 (04 1980), pp. 357405CrossRefGoogle Scholar.

24. For a recent overview of research on international banking regulation, see Portes, Richard and Swoboda, Alexander, eds., Threats to International Financial Stability (Cambridge: Cambridge University Press, 1987)Google Scholar.

25. I thank Stephen Krasner for highlighting this point.

26. Rothstein, , “Consensual Knowledge,” pp. 733–62Google Scholar.

27. Pecchioli, , Internationalisation of Banking, p. 96Google Scholar.

28. See Haas, , “Why Collaborate?” p. 365Google Scholar.

29. See, for example, Waltz, Kenneth, Theory of International Politics (Reading. Mass.: Addison-Wesley, 1979)Google Scholar.

30. For a treatment of the relationship between state power and state purpose, see Jervis, Robert, “Realism, Game Theory, and Cooperation,” 07 1987, mimeographedGoogle Scholar.

31. GAO, International Banking, p. 25Google Scholar.

32. Telephone interview with an official of the Federal Reserve Board, 25 January 1988.

33. GAO, International Banking, p. 11Google Scholar.

34. Keohane, Robert, After Hegemony (Princeton, N.J.: Princeton University Press, 1984), p. 79Google Scholar.

35. Dale, , Regulation of International Banking, p. 157Google Scholar.

36. Pecchioli, Internationalization of Banking.

37. International Monetary Fund (IMF), International Capital Markets (Washington, D.C.: IMF, 12 1986), p. 42Google Scholar.

38. On regulators' concerns, see Carron, Andrew S., “Financial Crises: Recent Experience in U.S. and International Markets,” Brookings Papers on Economic Activity, no. 2, 1982, pp. 395419CrossRefGoogle Scholar

39. Pecchioli, Intemationalisation of Banking.

40. Dale, , Regulation of International Banking, p. 98Google Scholar.

41. Ibid.

42. Telephone interview with a former regulatory official of the Federal Reserve Board, 25 January 1988.

43. GAO, International Banking, p. 25Google Scholar.

44. Maisel, Sherman J., ed., Risk and Capital Adequacy in Commercial Banks (Chicago: University of Chicago Press, 1981), p. 5Google Scholar.

45. The most important BIS studies were the following: Committee on Banking Regulations and Supervisory Practices, The Management of Banks' Off-Balance Sheet Exposures (Basle: BIS, 1986Google Scholar); and BIS, Recent Innovations in International Banking (Basle: BIS, 1986)Google Scholar.

46. Interviews with officials of the Federal Reserve Board, January and February 1988.

47. Federal Reserve Board, “Capital Maintenance: Supplemental Adjusted Capital Measure,” 24 01 1986, mimeographedGoogle Scholar.

48. The American Bankers Association comments to the Federal Reserve Board, 23 May 1986, mimeographed.

49. Interviews with officials of the Federal Reserve Board, January and February 1988.

50. Pohl, Karl Otto, “Spaak Lecture: The European Monetary System,” Harvard University, 4 05 1987Google Scholar.

51. “Why the Transatlantic Deal Must Be Extended,” Financial Times, 7 May 1987.

52. For a good description of the accord, see Duffy, John J., “Capital Rules Will Fortify Banks,” American Banker, 20 01 1987, p. 2Google Scholar.

53. Volcker, Paul, “Capital Trends and Federal Reserve Guidelines Program,” Federal Reserve Bulletin (06 1987)Google Scholar.

54. Yingling's, Edward comments to the Federal Reserve Board, 23 06 1987, mimeographedGoogle Scholar.

55. Ibid.

56. Bryan, Lowell, ”Capital Guidelines Could Weaken Banks,” Wall Street Journal, 23 04 1987, p. 35Google Scholar.

57. Ira Stepanian's comments to the Federal Reserve Board, 11 May 1987, mimeographed.

58. Ibid.

59. Quoted in Duffy, , “Capital Rules,” p. 2Google Scholar.

60. Norman, Peter, “Way to Boost Global Banking Stability Proposed by 12 Industrialized Nations,” Wall Street Journal, 11 12 1987, p. 10Google Scholar.

61. Graven, Kathryn, “Japan's Banks Strengthen Capital Base in Response to U.S., European Pressure,” Wall Street Journal, 6 08 1987Google Scholar.

62. Koenig, Peter, “Into the Maelstrom,” Ettromoney, 06 1987, pp. 6779Google Scholar.

63. Rehm, Barbara, “NY Fed Chief Lists Ways Japan Can Open Markets,” American Banker, 7 05 1987, p. 2Google Scholar.

64. For a Japanese perspective on the external pressures, see Sumitomo Bank, 1987 Annual Report; and Koenig, “Into the Maelstrom.”

65. Committee on Banking Regulation and Supervisory Practices, “Proposals for International Convergence of Capital Measurement and Capital Standards,” 12 1987, mimeographedGoogle Scholar.

66. Ibid.

67. Melloan, “Global Bank Regulation.”

68. National regulators are still expected to evaluate the balance sheets of their international banks and to make any modifications to the bank's lending policies that are deemed necessary.

69. Melloan, George, “New Risk Rules Could Redirect Bank Lending,” Wall Street Journal, 22 03 1988, p. 35Google Scholar.

70. Goldman Sachs & Company, “New Global Capital Standards,” 12 1987Google Scholar.

71. Yair, E. Orgler and Benjamin Wolkowitz, Bank Capital (New York: Van Nostrand Reinhold, 1976), p. 115Google Scholar.