Well, the IMF now has spoken and it was a remarkably straightforward assessment, indeed! Above all, it didn't shy away from a critical self-assessment. It is certainly surprising that the IMF would have come out with such a critical self-assessment. The content of what they have now put on record should not surprise at all!
Everyone who has ever been involved with external payment problems of a country knew by early 2010 that a
'run on the country' was in the making in Greece. The run had actually started back in 2008 when foreign banks began calling their short-term lines for Greek banks. In other words, they began reducing their Greek exposures. By late 2009, it only required a spark to turn this into a real run, and that spark was the new government's accouncement that the budget figures needed to be restated. By early 2010, it had obviously become a case of
'game over'.
Everyone knew that. Everyone, I should add, except EU-elites.
A run on a country cannot be stopped by strong expressions of support by politicians; or by a 110 BEUR financial commitment. By year-end 2009, Greece's foreign debt was close to 400 BEUR. To stop that run, the financial commitment would have had to be for 400 BEUR plus a commitment to finance all further cash needs of the country.
Barring such a financial commitment, a run on a country can only be stopped if it is stopped in its tracks. That would have entailed an immediate stop on all foreign debt service and the initiation of negotiations to restructure the existing foreign debt of the entire country (not only the sovereign debt). When Angela Merkel announced that
'if Greece fails, the Euro fails and if the Euro fails, the EU project will fail', she irreversibly opened the door to the unfortunate development which has taken place since then. I once wrote an article that the
EU-elites would deserve a Nueremberg-trial for that irresponsible decision.
The IMF now admits that Greece's debt should have been restructured right away. This is mistakenly interpreted as meaning that Greece should have been forgiven a substantial portion of its debt right away. A debt restructuring and a haircut are two separate things. A debt restructuring can involve a haircut but it doesn't have to. In the case of Greece, an EU-member and thus a country of the First World, a haircut should never have even be considered at the time.
To make a haircut on sovereign debt at the outset of a crisis, particularly if it is a First World country, is a terrible precedent of gigantic proportions whose long-term effects cannot be foreseen. If there had been a one-time catastrophy, it might have been different but Greece was not a case of a one-time catastrophy. Such a haircut may be considered after 10 or 20 years of unsuccessfully battling an economic crisis but not at the outside. Among other reasons, because there are better ways to accomplish the same effect.
Thus, what the IMF calls a 'restructuring' should have been a straightforward 'rescheduling' of debt. As the Chief Economist of Citibank later stated in an interview:
"The Europeans did not know that, outside Europe, debt reschedulings of
sovereign debt with existing creditors have come a dime a dozen in
recent decades”. Citibank is probably the most experienced player in the field of sovereign debt reschedulings.
The overriding principle of a debt rescheduling is that
'risk takers must remain risk carriers'. I. e.: every creditor must keep the risk which he already has. All he does is to extend the maturities of debt and interest payments.
What about the issue Greece's debt not having been sustainable back in 2010? Well, one takes the amount of debt which is deemed to be non-sustainable; for example all debt over 50-60% of GDP. And then one refinances that non-sustainable debt with a very long-term bond (at minimum 30 years) and with interest capitalization. Put differently, Greece would have not have had to make any service on that debt for at least 30 years.
Why would creditors have accepted that? For a very simple reason: because it is far better than a haircut! Once a haircut is made, the creditor has forgone all his claims. When he accepts a new 30-year bond with interest capitalization, that bond may trade near zero at the outside but the creditor retains a legal claim (and the bond might increase in value if Greece were to turn into an economic miracle in the next 30 years).
Who would have been the beneficiaries of that? Not really Greece because the country's debt wouldn't have changed (only much of its service would have been deferred). The beneficiaries would have been the European tax payers! Instead of sending 247 BEUR to Greece (which they have done since then), they would have had to send only 40-50 BEUR. Why? Because that was the part of the 247 BEUR which actually stayed in Greece. The rest was immediately recycled for foreign debt service.
Put differently, European tax payers could not have been misled that Greece needed
'hundreds of BEUR'; European electorates would have shown much greater understanding for supporting Greece. European tax payers might still have had to come up with the remainder of the money to bail out their banks but that would have had two very favorable consequences: European tax payers would have had transparency as to what they were really financing and, secondly, they would have received something in exchange, namely equity in those banks which would have had to be saved.
Instead, what happened was:
the EU used Greece's balance sheet to bail out its banks and they called that 'help for Greece'.
Does that have anything to do with the infamous austerity and the collapse of the Greek economy which it allegedly caused? Not really! I do not accept the argument that Greece's pain would have been diminished if there had been less austerity. An economy does not work based on scientific rules where it can be projected what happens, if... An economy works very much on the basis of expectations. If less austerity had lead to more optimistic expectations on the part of Greeks, less austerity might indeed have done the trick. However, I argue that it was expectations which 'killed' the Greek economy. The Greek economy had become such a basket case by 2009 that expectations for a turn-around simply weren't there. Not internationally; neither domestically.
Greece had a budget deficit of 15% in 2009 and a primary deficit of 10%. Now, if that is not a fiscal stimulus, then I don't know what is. And yet, Greece's GDP
declined by a little over 3% in 2009! How much more stimulus than that could have stopped the decline which occurred when expectations fell apart?!?
The IMF is very vague when it comes to suggesting how Greece's pain could have been diminished. They insinuate that if structural reforms had been implemented, etc. etc., then private sector growth would have come about automatically. Well, that sounds like an illusion because when expecations work against it, there is no hope.
I have always been very clear on what should have been done. With unavoidable austerity in the public sector, there would have had to be an enormous push for growth in the private sector. For example: an immediate long-term economic development plan for the Greek private sector. If for no better alternatives, the implementation of the
Greece Ten Years Ahead plan proposed by McKinsey. Who would have had to finance the implementation of that plan? My answer was/is: private foreign investors.
If offered a good Foreign Investment Law and if offered security that the Foreign Investment Law would be honored by Greece at all times (i. e. an EU-guarantee for the political risk, including the risk of a Grexit), foreign investors would undoubtedly have come.
Accompanying measures would probably have been some form of special taxes on imports to stimulate domestic import substitution ('infant industry protection'), some form of export promotion and, in all likelihood, at least temporary capital controls. All violations of EU-treaties? Yes, indeed. But considering how many EU-treaties have been violated in the past 3 years at enormous cost to all, this would have been a fairly acceptable violation because it would have supported a long-term plan. And, an EU-guarantee for the political risk would have cost the EU but a few signatures.
Short of a bold new private sector initiative, one would be inclined to
agree with Prof. Paul Krugman when he says
'in that case you have to wonder whether it was worth trying to keep
Greece in the euro at all. “Grexit” would have been ugly, and will still
be ugly if it eventually happens. But compared with what has actually
taken place?'
ADDENDUM AS OF JUNE 8
The
IMF’s Ex Post Evaluation (EPE) has been generally interpreted as a complete mea
culpa on the part of the IMF with a complete culpa assigned to the EU. Greece
was said to come out of it as the victim of having been used as a ginny pig.
Against this background, it is noteworthy to pay attention to the following
quotes from the EPE.
From
the Executive Summary
“Competitiveness
improved somewhat on the back of falling wages, but structural reforms stalled
and productivity gains proved illusive”.
“The
depth of ownership of the program (on the part of Greece) and the capacity to
implement structural reforms were overestimated”.
From
the Report
“Some
argue that Greece was the country that gained most from euro adoption.
Government interest expense dropped from 11,5% of GDP in the mid-1990s to 5% of
GDP in the mid 2000s. These savings were more than swallowed up by increased
spending on wages and pensions. The general government deficit reached 15,5% of
GDP, up from 4% in 2001 (i. e., ceteris paribus, without the direct fiscal
dividend of lower interest expense, the deficit comparable with 2001 would have
been 22% in 2009!)”.
“Tax
administration reforms encountered setbacks due to political resistance and
capacity constraints. There were few signs by the end of the first program that
collection efficiency was being improved on a permanent basis”.
“Labor
market reforms were initially judged to be progressing well, but a more
critical view was taken in later reviews. The absence of early actions to
reduce private wages may have aggravated the job losses from the economic
downturn”.
“The
product markets and the business environment failed to generate critical mass
necessary to boost growth. Progress was disappointing and militated against
realization of the productivity gains that had been hoped for”.
“Confidence
was badly affected by domestic social and political turmoil. Some of the
adverse political developments followed from limited ownership of the program”.
“The
burden of the program was not shared evenly across society. Specific plans to
downsize the number of civil servants were limited to a commitment to replace only
20% of those who retired. The state enterprises also remained generously
staffed”.
“Ownership
of the program was limited. Vested interests had fiercely opposed structural
reforms in the past. Little progress was made with politically difficult
measures such as privatization, downsizing the public sector and labor market
reforms”.