European Perspectives 2011
Plan B
- Markets are concerned that Europe’s policy response to date decisively addresses neither the very real solvency concerns nor the path to regaining competitiveness in a fixed exchange rate environment.
- The challenges facing Europe were aggravated by the global financial crisis but are rooted in the framework of the Economic and Monetary Union (EMU).
- We think Europe will muster the political will to keep the monetary union intact, but there remains a residual probability that some societies may prefer to exit the union rather than face years of economic hardship.
“Before I draw nearer to that stone to which you point, answer me one question. Are these the shadows of the things that Will be, or are they shadows of things that May be, only?”
– Ebenezer Scrooge
In Charles Dickens’ novel A Christmas Carol, the third spirit, the Ghost of Christmas Yet to Come, harrows Ebenezer Scrooge with dire visions of the future if he does not learn and act upon what he has witnessed. Scrooge’s own neglected and untended grave is revealed, prompting him to change his ways in the hope of changing the shadows of what may be. Europe is experiencing a similar moment.
Government bond yields in Europe’s fiscally challenged countries continue to rise. Instead of being reassured by budget cuts and official loans provided to Greece and Ireland, capital flight continues, market measures of credit risk remain elevated and the European Central Bank’s (ECB) holdings of Greek, Irish and Portuguese government bonds remain on an upward trend. In the process, markets are questioning how countries that have built up large debt overhangs, that have become internationally uncompetitive and that share a common monetary policy but limited cross-border labor movement and fiscal transfers can regain competitiveness in a fixed exchange rate regime?
The challenges facing Europe were aggravated by the 2008–2009 global financial crisis. Yet their roots lie in the framework and governance structure of the Economic and Monetary Union (EMU). Given this framework, there is high uncertainty about the future debt dynamics of EMU’s fiscally challenged countries and their ability to sustain significant austerity programs while transitioning to higher growth.
It is not clear yet how this important chapter in Europe’s history will play out. There are a range of possibilities: It is possible that the peripheral European economies will deliver on their ambitious fiscal adjustments and, in the process, regain the path of high growth and financial stability. It is also possible that adjustment fatigue will set in, growth will not materialize as expected, and the risk of some countries defaulting and possibly exiting EMU goes up.
Europe’s policy response to date has been to provide liquidity support to Greece and Ireland in return for very ambitious fiscal austerity measures. The objective is to buy time for these countries to grow into more sustainable debt dynamics and for banks with exposures to them to build capital reserves.
Markets are concerned that this response decisively addresses neither the very real solvency concerns nor the path to regaining competitiveness in a fixed exchange rate environment. Liquidity by itself – be it through a larger European Financial Stability Facility (EFSF), more purchases by the ECB, common Eurobonds or lower interest rates on official loans – is not sufficient to solve these long-term structural problems.
There’s also the risk that simply applying a liquidity solution to an insolvency problem may contaminate the balance sheets of otherwise financially strong countries. Moreover, constraints on EMU’s fledgling political integration and fixed exchange rates make for difficult policy choices that increase the risk of contagion.
On the one hand, the danger of addressing insolvency issues now is depleting even more capital from Europe’s banking system, which is still recovering from the U.S. subprime debacle. On the other hand, if growth does not turn out as expected and addressing insolvency problems is postponed, the risk is that contagion will spread to Spain, Italy and Belgium, making the problem bigger. As investors, we need to factor in this possibility and consider alternative strategies.
Regaining Competitiveness
Underlying EMU’s sovereign crisis is a combination of uncompetitiveness and a debt overhang. Since the inception of the euro in 1999, prices in Spain, Greece and Portugal have risen relative to their trading partners, reducing their competitiveness and coinciding with large current account deficits (Chart 1). Add on the debt overhang – in Greece in the public sector; in Ireland and Spain the private sector and in Portugal a bit of both – and you have the ingredients for today’s problem. To complicate matters, Europe’s banking system intermediated the current account deficits assuming no exchange rate risk and little credit risk but without considering how these countries will regain competitiveness.
Regaining competitiveness is hard through only “internal devaluations” associated with tight fiscal policy. Moreover, the regional economic environment is not enabling, as all countries in Europe are trying to reduce their budget deficits at the same time. It’s hard to grow when both you and your trading partners are cutting consumption too. Fiscal austerity, while necessary, can also undermine the economic growth needed to stabilize these countries’ debt burdens.
Generally, a sovereign insolvency can be averted via sufficiently large transfers or currency depreciation when debt is denominated in local currency. Historically, European countries that successfully completed large fiscal adjustments fulfilled the latter conditions. Most of them experienced exchange rate depreciation and most of their debt was denominated in local currency. Prior to EMU, as the top half of Chart 2 shows, European countries completed fiscal adjustments that averaged 10% of GDP, took eight years to complete and were associated with 13% exchange rate depreciations and 22% increases in nominal GDP over the first three years of the adjustment.
There is little historical evidence of countries successfully regaining competitiveness and working off debt overhangs without experiencing exchange rate depreciation. In Europe prior to EMU, only Germany (1979–1989) and Switzerland (1993–2000) completed large fiscal adjustments without exchange rate depreciation. Latvia, which pegs the lat to the euro, successfully began a large adjustment worth almost 9% of GDP in late 2008, but so far at the price of nominal GDP falling 27% from peak to trough. Outside Europe, Argentina tried but defaulted in 2001.
Without access to fiscal transfers or exchange rate flexibility and local currency debt, those European Union (EU) countries in the lower half of Chart 2 face a policy credibility and flexibility issue. We are witnessing a real-time experiment in fiscal adjustment frameworks between Iceland, which is outside the EU, pursuing a policy of defaults, capital controls and external devaluation, and EU countries that are opting for internal devaluation. Only time will tell which framework works best. We remain skeptical that Europe’s fiscally challenged countries will muster the social cohesion necessary to regain competitiveness and reduce their debt overhangs via internal devaluation without further concessionary assistance.
Default becomes an especially high risk event when a debt overhang exists and the debt is denominated in external currency, but it provides little help to regain competitiveness. As Desmond Lachman suggests in a December paper delivered to the Legatum Institute, some countries could have to ultimately exit EMU in order to regain competitiveness because their primary deficits are so large, and there are limits to how much labor productivity can be increased or how much people are willing to let living standards fall in order to devalue internally. We think Europe will muster the political will to keep EMU intact. But in light of the ongoing protests against fiscal austerity and the apparent inequity of making the broad population suffer while private sector creditors receive their bonds paid back in full, there remains a residual probability that some societies may prefer to exit EMU rather than face years of economic hardship.
What are the pros and cons of exiting the euro anyway? The main advantage would be the opportunity to regain competitiveness. The harmonized competitiveness indicators in Chart 1 offer a clue: Assuming a 2% inflation difference, Ireland, Portugal and Italy could catch up to the average competitiveness level of Germany, Austria, Finland and France in six to seven years. But Greece and Spain would need 10 to 11 years to bridge their competitiveness gap with the core. Although practically that means zero inflation in the periphery given 2% in the core, it will take a long time, depress nominal GDP in the process and risk destabilizing the debt dynamics. Therein lays the risk of a social backlash against the euro and accompanying policy fatigue. The main disadvantage of exiting the euro would be the likelihood for an abrupt wave of public and private sector defaults due to the soaring value of euro debt obligations in local currency, not to mention the enormous social and operational costs of reintroducing a local currency. Exiting the euro should therefore only be seen as an ultima ratio option when really nothing else, including unconditional transfers, works.
A host of solutions have been proposed to solve the crisis, including Eurobonds, large scale asset purchases by the ECB, a larger EFSF, lower rates on official loans and a stand-by loan for Spain. In one way or another, they aim to provide more liquidity at concessional rates. While the liquidity would buy more time, it would not solve a country’s competitiveness problem. Eurobonds with joint and several liabilities would provide fiscally challenged countries liquidity at concessional rates but without giving surplus countries any tool to ensure budget compliance in the former group. Eurobonds could also raise EMU’s AAA-rated countries’ borrowing costs by between €2 billion and €5 billion per annum. That surplus countries will have to pay more is unavoidable. The question is how to sell it to their voters.
Proposals led by Germany to create the European Stability Mechanism (ESM) in 2013 when the current EFSF expires go in the right direction. Rather than being criticized for aggravating the crisis, Germany should be commended for its initiative to introduce a sovereign debt restructuring mechanism inside the ESM, including private sector burden sharing. Germany has demonstrated it understands the difference between liquidity and solvency solutions. We think the ESM should be activated sooner: Given the low probability of peripheral countries’ achieving sufficient economic growth to stabilize their debt (due to lack of policy flexibility), uncertainty about the future value of these countries’ bonds could potentially prevent interest rates in Spain, Italy and Belgium from falling. Credible fiscal policies alone will not stabilize debt; interest rates also need to fall. Italy is the world’s third largest government bond market and Europe cannot afford to allow these latter countries to lose market access.
Plan B
At PIMCO’s quarterly economic forums, where we discuss our outlook for the global economy and financial markets in order to formulate our top-down investment strategy, we are often advised to “separate what you think will happen from what should happen”. What we think will happen is that the European sovereign crisis will end when the hidden losses of unsustainable debt burdens, whether real or perceived, are either crystallized, socialized or earned away via higher growth.
Fiscal austerity and lack of exchange rate flexibility preclude higher growth. The EU’s budget and governance structures are too young to allow socialization of losses. That leaves realizing losses, which is a real risk for investors. Without addressing the insolvency issues in Greece, Ireland and Portugal in a timely fashion, contagion could spread to Spain, Italy and Belgium. This could prompt a bigger, albeit reactive policy response, including the ECB or EFSF buying more peripheral bonds and a larger EFSF. But that will not end the crisis.
For the euro to endure, a more comprehensive plan is needed. What we think should happen is for the ESM to be activated sooner. A thorough debt sustainability analysis, which the ESM is mandated to conduct from 2013 onward, will likely show what markets are discounting today. Haircuts sufficient to restore debt sustainability may be needed. Banks exposed to sovereigns whose debt sustainability is at risk should speed up raising capital. Old bonds of those countries conducting haircuts could be exchanged for new bonds guaranteed by EMU’s AAA-rated countries. Banks and their shareholders and creditors may not like that, but bailing in the private sector would give politicians in the surplus countries that have to foot the bill credibility with their electorates who resent bailing out banks, Greece and Ireland.
Ultimately, the decision-making power over distribution of the EU’s budget needs to change if Europe moves toward unconditional transfers, which a fiscal union implies. Larger value added tax (VAT) contributions to the common budget, reallocation of appropriations away from agricultural subsidies directly to countries’ central government budgets and reorganization of voting rights in the European Council to better reflect countries’ populations and contributions to the budget would strengthen the euro area’s longevity.
A Bird in the Hand is Worth Two in the Bush
Rome was not built in one day. While our wish list for the euro area is nothing more than that – a wish list – and may require decades to be realized, if at all, some things can be executed in a timely fashion. Waiting for the perfect conditions to implement the ESM in 2013 may be too late. Consequently, our European investment strategy remains similar to the strategy we pursued in 2010.
We continue to underweight European peripheral sovereign and credit risk given possible restructuring and contagion issues. We are cautious on German duration and the euro, given the potential for the peripheral countries to contaminate the German balance sheet, other core countries and the ECB.
We remain underweight European senior bank debt, reflecting concerns that the peripheral crisis could lead to more contagion in the banking sector. We believe that U.S. senior financials offer better risk/reward characteristics and valuations relative to their European counterparts.
As with other PIMCO portfolios, a key part of our strategy across European portfolios is to target “safe spread” investment opportunities: Securities we believe are able to earn a spread relative to sovereign debt across a range of possible economic scenarios. Our focus is skewed toward investment grade credit and select high yield opportunities, covered bonds and asset-backed securities. Given the contrast in fundamentals and growth opportunities, we will continue to favor emerging market securities and currencies.
At the end of A Christmas Carol, Scrooge awakens Christmas morning with joy and love in his heart, and he spends the day with his nephew’s family after anonymously sending them a prize turkey for Christmas dinner. Scrooge becomes a different man overnight, treating his fellow citizens with kindness, generosity and compassion. If the euro is to endure, Europe will have to undergo a similar transformation.