Germany’s savings banks under fire from European watchdogs
Europe’s main financial regulators are on a collision course
with Germany’s dominant savings banks as a push to reform their deposit
protection scheme threatens to shake up decades-old privileges at the country’s
largest and most politically entrenched banking group.
The European Central Bank and the German financial regulator
BaFin have been for much of this year urging the savings banks to overhaul the
sector’s safety net that is meant to protect individual lenders from collapse,
but have so far met stiff opposition.
With 50m clients, Germany’s 377 municipally owned Sparkassen
and their larger siblings, the crisis-prone Landesbanken, are the dominant
force in the country’s banking system, controlling a quarter of its banking
assets between them. Sparkassen deposits total €742bn.
While most of Germany’s Sparkassen are individually too
small to be among the banks supervised by the ECB, the central bank has
responsibility for checking that national deposit insurance schemes are
sufficiently robust and there is a level playing field across the bloc.
Supervisors have long been concerned about the lack of
clarity over who is responsible for stepping in to support a public sector bank
in Germany when it runs into difficulties, said a person briefed on the matter.
“This has been a known issue for years,” a person familiar
with the discussion said, adding that German financial watchdogs ignored the
problem because of political lobbying from the Sparkassen. “This issue is
really a case in point why a pan-European regulator is necessary,” this person
said.
Should regulators ultimately lose confidence in the
Sparkassen protection scheme, they might strip the group of one of its most
important institutional privileges.
While each Sparkasse is a legally independent entity, the
whole group is still treated like an integrated, nationwide bank by regulators
in one important aspect — each Sparkasse does not have to put equity aside for
loans to other members of the group. “This privilege has been an important
competitive advantage for the Sparkassen sector,” said a former regulatory
official.
The issue also has a wider political sensitivity because the
Sparkassen have long lobbied the German government against proposals for a
pan-eurozone deposit insurance scheme, which they fear would supersede their
own support system.
Since the 1970s, the Sparkassen have operated an
“institutional protection scheme” that is designed to prevent the collapse of
an individual lender, rather than just to guarantee clients’ deposits in case
of the demise of a Sparkasse.
Other countries that have similar institutional protection
schemes between groups of co-operative and savings banks include Spain and
Austria.
The German system is highly fragmented as it consists of 13
different regional funds. Moreover, the protection scheme does not act
automatically should a member run into trouble. Instead, it only comes to the
rescue if a qualified majority of its other members agrees to do so.
“The fact that there is no binding obligation to act is a
fundamental design flaw,” said the former regulatory official, adding that
nobody can rely for sure on the scheme.
In a letter to Helmut Schleweis, the president of the German
Savings Banks Association (DSGV), the ECB and BaFin pointed out
shortcomings in the deposit insurance system, people familiar with the letter
told the Financial Times. The contents of the letter were first reported by
Handelsblatt.
The regulators are calling for sweeping changes such as the
creation of an additional rescue fund on top of the 0.8 per cent of deposits
the Sparkassen is building by 2024.
The regulators worry that the institutional protection
scheme operated by the Sparkassen has not been properly stress-tested to ensure
it has enough money to handle a crisis.
The DSGV has dismissed the regulatory demands. “Over the
past 50 years, not a single client lost his deposits or needed to be
reimbursed,” the association said in a statement, adding that it was confident
it could convince regulators of its point of view. The DSGV declined to comment
on details, pointing to the confidentiality of the talks.
The ECB is expected to communicate its final decision to the
German savings banks this summer after central bank officials made little
progress during months of discussions with sector representatives, according to
one person briefed on the talks.
The ECB and BaFin declined to comment.
Jan Pieter Krahnen, professor of finance at Goethe
University in Frankfurt, welcomed the regulatory scrutiny. “The Sparkassen’s
institutional protection scheme has evolved over decades but has become
outdated,” he said, adding that it needed to be revamped urgently.
Mr Krahnen pointed to the costly bailouts for publicly owned
Landesbanken HSH Nordbank and NordLB, which cost the German taxpayer billions
of euros. “These examples show that the institutional protection scheme does
not work properly.”
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