In the biggest advance in European integration since the launch of the euro in 1999, the European Central Bank will take charge of supervising banks from Helsinki to Lisbon in November after subjecting their books to unprecedented scrutiny.
The aim is to restore confidence in the eurozone’s banks, battered by the 2007-2008 global financial crisis and the currency area’s own debt crisis, and help revive lending to businesses and households, especially in stricken southern Europe.
Many economists say Europe is at least five years behind the US in cleaning up its banks, which explains in part why the eurozone’s economic recovery is so slow and fragile.
But it is not clear that the ECB exercise, involving a rigorous review of 131 banks’ assets and liabilities and a tough test of their ability to withstand economic shocks, will be sufficient to get more credit flowing into the “real economy”.
The problem lies less in any design fault in the process, which analysts agree is more demanding and transparent than two previous rounds of softball stress tests in 2010 and 2011 conducted under the aegis of the European Banking Authority.
The issue is more whether credit to firms in Italy, Spain, Portugal and Greece is scarce and expensive because shaky banks there cannot borrow and are reluctant to lend, or because of a shortage of demand in stagnant economies.
Where there is credit demand, banks scarred by the damage that bad lending can do may be too scared to lend to all but the safest of companies.
There is also concern about whether politics will get in the way of the ECB’s drive to restructure or wind down ‘zombie’ banks and reverse financial fragmentation in Europe.
Daniele Nouy, the French official heading the ECB’s Single Supervisory Mechanism, has vowed to resist political pressure, to which she says national supervisors have been prone in the past. Those same national supervisors will now sit on her board.
“We will not shy away from winding down banks,” she told German magazine Der Spiegel in June.
The eurozone crisis sparked an outbreak of banking nationalism, with governments and regulators trying to curb cross-border exposure. In one notorious case, Germany’s banking supervisor barred a German unit of Italy’s Unicredit from transferring funds to its parent company.
Nicolas Veron, an expert on banking supervision at the Bruegel economic think tank in Brussels who was among the first to propose a European banking union, says the crunch will come if governments resist ECB efforts to close down ailing lenders.
“Lots of governments are worried that their banks may have to be closed,” he told Reuters. “It is unclear how far the ECB will go in clashing with governments. That won’t be entirely settled before the ECB takes over supervision on November 4.”
There could be disputes over the ECB banking supervisor’s treatment of government or local authority guarantees, of certain forms of hybrid capital and of the valuations of assets such as derivatives and foreclosed real estate portfolios.
Political pressure has already led to one exception being made for troubled Franco-Belgian lender Dexia, which has had €12 billion in State aid and is being wound down. According to sources familiar with the matter, Dexia will not have to prove it could withstand a financial crisis, reducing the chances of it needing further public funds.