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Government Banking Government Banking Government Banking New Perspectives on Sustainable Development and Social Inclusion From Europe and South America Kurt von Mettenheim & Maria Antonieta Del Tedesco Lins © KONRAD ADENAUER FOUNDATION – 2008 EDITORS Kurt von Mettenheim Maria Antonieta Del Tedesco Lins LAYOUT AND DIAGRAMATION Caio Fábio Machado COVER DeSIGN Patrícia Azevedo PRESS Editora Vozes X000 Government Banking : New Perspectives on Sustainable Development and Social Inclusion From Europe and South America / Kurt von Mettenheim & Maria Antonieta Del Tedesco Lins, [editors]. - Rio de Janeiro and Berlin : Konrad Adenauer Foundtion , 2008. 232 p. ; 24 cm. ISBN – 978-85-7504-122-8 1. Government banking. 2. Political economy. 3. Social economy. 4. Microcredit. I. Mettenheim, Kurt von & Lins, Maria Antonieta Del Tedesco. II. Konrad-Adenauer-Stiftung. CDD- 303.4 Table of Contents Introduction, Kurt von Mettenheim 7 Part I – Government Banking in Europe 39 Chapter 1 Community Banking Networks and Financial Exclusion:How Savings Banks and Cooperative Banks Contribute to Financial Inclusion in Germany, Anke Turner and Ingrid Größl 41 Chapter 2 Commitment to Corporate Social Responsibility through Supportive Actions in the Banking Industry, Jean-Yves Saulquin 65 Chapter 3 European savings banks and the future of public banking in advanced economies. The cases of France, Germany, Italy and Spain, Olivier Butzbach 85 Part II – Government Banking in Latin America 127 Chapter 4 From Development Banking to Microfinance: Reflections on the Recent History of Banking and International Cooperation Policies in Latin America, Manfred Nitsch 129 Chapter 5 The Chilean BancoEstado; Inclusive Finance; Expanding Borders, José Manuel Mena V. & Enrique Errázuriz L. 135 Chapter 6 Reform of Brazilian Federal Public Banks: Policies, Program, Doctrinal Basis and Theoretical Affinities, Carlos Augusto Vidotto 155 Chapter 7 Still the Century of Government Savings Banks? A Case Study of the Brazilian Federal Government Caixa Econômica Federal, Kurt von Mettenheim 179 Conclusion, Kurt von Mettenheim & Maria Antonieta Del Tedesco Lins 197 Notes on Contributors 223 List of Tables 225 List of Figures 228 Introduction1 Kurt von Mettenheim This volume makes available to a wider academic and policy making public the proceedings of an international seminar on government banking at the São Paulo Business School of the Getulio Vargas Foundation (Escola de Administração de Empresas de São Paulo, FGV-EAESP) in August 2006. Scholars, policy makers, bank executives, and representatives from multilateral financial institutions from Europe, North America, and Latin America gathered to reassess the role of government banks, especially in terms of their capacity to accelerate sustainable development and social inclusion. Scholars included economists, political scientists, financial economists, and financial statisticians, all sharing interest in better understanding the role of government banks in comparative perspective. In April 2006 the conference conveners circulated a discussion paper that reviewed research then underway on Brazilian federal government banks and presented a variety of themes for exploration at the seminar in August. The following questions were posed to authors: 1) What regional and national traditions of public banking can contribute to sustainable development and social inclusion? 2) Are there “varieties of financial capitalism”? 3) Does the debate in financial economics about bank-centered and market- centered financial systems supply new perspectives on varieties of capitalism and broader concerns about development? 4) What reforms are most effective in bank-centered financial systems? 5) Are critics right? Do public banks cause financial repression? These questions inspired different foci by participants. Some chose to focus empirically on developments within specific countries. Some chose to focus on the historical trajectory and current policies of specific government banks. Some chose to pursue comparative analysis of small number of countries. Some chose to 1 Parts of this introduction are based on or taken from the manuscript “Commanding Heights: Statecrafting Federal Government Banks in Brazil” in review at the Penn State University Press. compare across national and regional experiences. Although several participants were unable to complete or permit publication of materials presented, additional contributions from scholars in Europe and Brazil working on issues of public banking expanded the scope of the volume. The differences between seminar proceedings (on government banking generally) and this volume (a focus on savings banks in Europe and South America) reflect our attempt to follow the rapid evolution of thinking about finance and development during the last years. In a broader sense, the volume remains as it started: a search for new perspectives on domestic banking in the 21st century that is “post-Washington Consensus.” During the 1980s and 1990s, international financial institutions and policy circles advocated liberalization and privatization as the preferred means to accelerate growth.2 Since 2000, it has become increasingly clear that domestic banking systems have taken a variety of different paths with government and savings banks retaining important roles. Across Continential Europe, savings banks, cooperative banks, and other non-profit and government owned and controlled financial institutions have reformed and modernized during European integration and the opening of domestic banking systems to competition. In Latin America, government savings banks remain important domestic actors that have modernized and retained or expanded market sh a r e of dome s t ic ba n k i ng . T he s e t r e nd s s ug ge s t t h at coor d i n ate d c apit a l i s t s y s te m s i n advanced economies and neo-developmental states in Latin America share important features exemplified by government banks. This volume explores the policies and experiences of savings banks and other government banks toward financial inclusion and sustainable development. This volume is controversial because it taps deep differences about government banks in the disciplines of finance, economics, politics, sociology, management, and public policy. Despite these differences, recent research suggests that banks (setting aside the question of government banks for the moment), far from being doomed to being replaced by financial markets, appear instead still to be central agents of growth. As Studart notes: “The supply of finance is causally determined by banks: it is banks, and not savers, who hold a key position in the process of growth.”3 The question raised in this volume is whether growth can be channeled by government banks toward sustainable development and social inclusion. This implies dealing with complex and deeply contested theories and concepts about banking and finance, government intervention, public policies, and development. The chapters presented herein are therefore cautious in the sense of providing case 2 From John Williamson´s Latin American Adjustment: How Much Has Happened. (Institute for International Economics, 1990), through the World Bank Policy Research Report, Bureaucrats in Business, and including policy analyses from the Inter-American Development Bank such as Unlocking Credit: The Quest for Deep and Stable Bank Lending (Johns Hopkins University Press, 2004) and Caprio, Gerard (et al) eds. The Future of State Owned Financial Institutions (Brookings Institutions, 2004), consensus remained that privatization is preferred policy. 3 Studart, R. Investment Finance in Economic Development (Routledse, 1995). p. 1 8 studies and empirical evidence, often on the micro and organizational level of analysis. This empirical focus is warranted given the deeply contested views about these institutions. Government banks are banks in the core sense of accepting deposits and making loans. As such they are managed as banks and remain subject to domestic banking regulations and monetary authorities, as well as international guidelines set by the Bank for International Settlements as well as rating agencies, media coverage, and legislative oversight. However, because they are governmental entities, government banks also cut to classic concerns of political development and democratization. Democratization and political development imply social inclusion within political institutions. And rather than a permanent gain, questions just a generation ago subsumed under modernization and development theory appear to haunt social scientists and policy makers once again. The stark increase in inequality across many nations during the last decades implies a return to questions about social inclusion and exclusion. Scholars of political development (exemplified by the Social Science Research Council series on political development published in the 1960s and 1970s) described a moving equilibrium between social mobilization caused by economic development and the incorporation of citizens within political institutions that remained open and determined by political action. Today is different. Domestic political actors and policy communities currently struggle to maintain domestic income distribution amidst international capital flows and other forces that tend to exclude many citizens from wealth and political influence. This volume suggests that savings banks and microfinance policies are capable of steering domestic financial systems toward better income distribution, social inclusion,
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