The Eurosystem in the International Monetary System
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Focus THE EUROSYSTEM IN THE factors that contribute to the international respon- sibility of the euro area (Section 3), the article INTERNATIONAL MONETARY examines the possible implications of the euro for SYSTEM the relationships among the three key currencies (Section 4). It then discusses the scope and meth- ods of international co-operation in a tripolar sys- tem (Section 5) as well as its institutional frame- TOMMASO PADOA-SCHIOPPA* work (Section 6).The role of the euro in relation to non-key currencies (Section 7), particularly those he introduction of the euro will have far- seeking an external anchor for their monetary pol- T reaching implications not only for the evolu- icy, is then considered. Finally, the article ends with tion of central banking and monetary policy, but a short conclusion (Section 8). also for international monetary and financial rela- tions and the world economy at large. It will modi- fy the environment in which players outside the The underlying rationale euro area, the large as well as the medium and small ones, will operate in the years to come. It will With the stipulation of the Maastricht Treaty in 1992 therefore entail new responsibilities for policy- (the “Treaty”), Europe has adopted an entirely new makers in Europe. approach to the choice of the monetary order of a group of interdependent but sovereign countries. The purpose of this article is to offer the reader an Going beyond fixed exchange rates between national overview of how the Eurosystem views its role as a currencies, it has created a single currency and estab- major actor in international monetary relations. The lished a single central bank. The importance of this article suffers from a very important limitation in that step is apparent if one looks back over the last 50 it is confined to only one aspect, albeit a crucial one, years and considers the repeated attempts to stabilise of “monetary relations”, i.e. exchange rate relations. exchange rate relations through adjustable peg Although for decades the latter were seen as the sole regimes. The evolution of international monetary The crucial role of the Eurosystem monetary issue generated by international interde- relations illustrates that i) open trade and ii) free in exchange-rate pendence, the reader should be aware that this is no international movement of capital render iii) fixed relations longer the case. Over the last quarter of a century,with exchange rate systems hardly compatible with iv) the emergence of a global monetary and financial independent national monetary policies. Exchange market, the agenda for international monetary co- rates pegs have repeatedly been chosen to stabilise operation has expanded considerably. It now includes trade and financial relationships between economi- such key central banking fields as the efficiency and cally interdependent countries, at both the global and soundness of the payment systems and the stability of the European scale. If, however, the policies of the the banking industry and securities markets. Co-oper- countries involved diverge, markets question whether ation in these areas has in fact progressed at a faster exchange rate commitments can and will be main- pace than in the field of exchange rates. tained. As the doubt grows, pressure may become enormous and eventually lead to the abandonment of The next section outlines the background against the peg. The four elements mentioned above form which the euro came into being, showing how its what is sometimes called an “inconsistent quartet”. creation constitutes a rather unique answer to the problems and contradictions of international eco- In the Bretton Woods System the inconsistency nomic interdependence. After highlighting the size became apparent in the 1960s when the develop- ment of an international capital market made it pos- * Tommaso Padoa-Schioppa is a member of the Executive Board of the European Central Bank. sible to circumvent official restrictions and controls. CESifo Forum 18 Focus It became increasingly difficult to subordinate eco- convergence in Europe was achieved through con- nomic policies to the exchange rate objective. When siderable fiscal consolidation and successful disinfla- the policy stance in the United States (the anchor tion. Financial markets rewarded these efforts with country) came into conflict with anti-inflationary lower interest rate differentials and relatively stable preferences of other important players (such as foreign exchange relations. Germany), the dollar became increasingly overval- ued and tensions grew.With economic fundamentals EMU is not just an evolution or a tightening of in the United States deteriorating sharply specula- previous arrangements such as the European tive activity in the foreign exchange market reached “snake” and the EMS. It is not a binding interna- a level far exceeding the defensive capacity of tional agreement to co-ordinate monetary policies. national authorities. A devaluation of the French Rather, it is a complete change of regime, the franc and a temporary floating of the German Mark establishment of the same monetary order that were, at the end of the 1960s, the first signs of the normally exists within a nation: one currency, one coming breakdown of the system. Eventually, the central bank, and one monetary policy. The coun- Bretton Woods regime collapsed as a result of the tries that have transferred their monetary compe- waning of the two conditions that had ensured its tencies to a new supranational institution, howev- initial success: a balanced macroeconomic situation er, retain their separate sovereignties in many in the anchor country and limited capital mobility areas, and even in the economic field. This is the between national financial markets. unprecedented feature of EMU. Intra-European relations went through a similar It appears from this glance at the past that two dif- A single currency at experience. Europe’s exchange rate peg moved ferent solutions have been chosen, at the global and the European level from a US dollar to a Deutsche Mark standard, the European level respectively, to resolve the same was combined with which took various forms and lasted until the problem. In both cases the inconsistent quartet had a floating-rate advent of the euro. Its main manifestation, the come about as a result of rising capital mobility. To system at the global level European Monetary System (EMS), was designed overcome the inconsistency, one element of the quar- in full awareness of the two drawbacks of the tet had to be dropped. The international community Bretton Woods regime: inflexibility and asymme- decided to drop the fixed exchange rate element and try. Flexibility was pursued, for more than half of moved to a regime of floating rates. Europe decided the ERM “narrow band” life, through timely to drop independent monetary policy and founded a realignments (11 between 1979 and 1987). As to single currency to complement the Single Market. symmetry, no currency was explicitly given a lead- The solution adopted for one area would not have ing role and parities were decided by “common been possible, or would not have worked, in the other accord” in relation to the ECU currency basket. In area. Europe, in particular, could – and, in a way, was practice, however, the Bundesbank led the mone- almost compelled to – move to the single currency tary policies of other members and the German because its economic and financial integration had Mark was de facto the anchor of the system. gone extremely far and because it was politically ready to establish common institutions. Using the jar- However, even intra-European relations came under gon of today’s debate on exchange rate regimes, the increasing strains as a result of capital liberalisation approaches taken by the world and by Europe and the creation of a single market in banking and respectively correspond to the two “corner solu- financial services. Economic and Monetary Union tions” that are sometimes seen as the only viable (EMU) was decided upon and enshrined in the ones in a world of capital mobility. The unresolved Treaty, not only for reasons of “high politics”, but problem of exchange rate arrangements for non-key also to remove the inconsistency of the quartet and currencies will be discussed below. to firm up the Single Market. When uncertainties about the ratification of the Treaty pointed to the risk that Monetary Union might not come about, an A new player on the field exchange rate crisis erupted because markets redis- covered domestic imbalances and policy contradic- The advent of the euro has brought a new player tions. Only the substantial widening of the fluctua- onto the field. “Euroland” (a name that was quickly tion band to ± 15% in August 1993 restored calm in adopted for the euro area) is, in economic terms, the market. In the years that followed, economic around the same size as the United States and twice 19 CESifo Forum Focus as large as Japan. With almost 300 million people, it ters. Establishing such a system would have required produces 15% of world GDP (the United States pro- the leading industrial countries to agree on desirable duces 20% and Japan 8%). Accounting for approxi- exchange rate levels and to act in order to keep mar- mately 20% of world exports (the United States ket rates within a range of permitted fluctuation. accounts for 15%, Japan 8.5%), it is the largest trad- ing partner in the world economy. In the debate that followed those proposals, the Eurosystem expressed serious reservations about In the monetary and financial field the euro, assum- the feasibility and desirability of any scheme that ing the mantle of the German mark and its other would attempt to enforce stability between the predecessors, has from the start been the second dollar, the euro and the yen. The Eurosystem international currency. Euro/dollar trading is the warned that as long as major players conduct inde- most active and liquid segment in the foreign pendent and domestically-oriented monetary poli- exchange market at the global level, followed by the cies such schemes would be impossible to reconcile dollar/yen currency pair.