The CIGI Survey of Progress in International Economic Governance, updated annually, tracks the progress made by the Group of Twenty (G20) and other international economic governance institutions in strengthening international cooperation. The survey tracks progress on key governance issue areas to gauge progress or regression in the international economic arena. To do so CIGI asked its scholars to answer the following question:
What progress has been made in improving the international economic governance system over the past year?
Recognizing the difficulty of making objective judgments given the complexity of these issues, the results are offered as a range of subjective opinions from the experts.
The survey is intended to assist policymakers ahead of the annual G20 Leaders Summit by identifying the key economic governance gaps in the current international political and economic climate. By highlighting the areas of the international economic system that warrant focused and sustained attention, CIGI’s experts seek to foster progress towards more effective international economic governance.
For the 2014 survey, 21 CIGI experts were polled. With an average score of 38% our experts concluded that there is a modest level of regression in the international governance system. This indicates that there is insufficient progress to inspire confidence in the long-run and that current economic governance arrangements are insufficient to adequately cope with large-scale economic shocks. The 2014 survey draws four important conclusions about progress in international economic governance:
The greatest level of progress is in the area of International Cooperation in Financial Regulation with an average score of 45%. Progress in this area largely reflects the progress made in strengthening the resiliency of the global financial system through reforms to international capital adequacy requirements under Basel III. Despite this, important vulnerabilities in the international financial regulatory regime remain.
Macroeconomic and Financial Cooperation continues to regress amidst persistent vulnerabilities in the Eurozone, a sluggish return to global economic growth, and the dangers of exiting from excessively accomodative monetary policies. These systemic issues are further exacerbated by a lack of progress on the governance of sovereign debt restructuring and IMF governance reforms.
Cooperation on Trade continues to regress in light of the WTO's failure to sustain momentum in the international trade regime and the potential for regional and plurilateral trade deals to make the international trade system fractured and uneven.
Cooperation on Climate Change continues to regress and prospects for progress remains pessimistic amidst the collapse of international climate change negotiations and continuing North-South collective action problems.
The key aspects of macroeconomic and financial cooperation that were considered by participants were the following:
"Policies promoting growth and employment generation continue to produce weak results in Europe and Japan, while a number of emerging economies are showing signs of weakness.
There has neither been progress on IMF quota reforms nor in IMF governance."
"The past year has seen some appalling developments. Most notably, in the areas of sovereign debt crisis resolution and IMF governance. The most dispiriting episode is the U.S. Supreme Court’s refusal to set aside a lower-court judgment in the dispute over Argentina’s debt restructuring. As a result, countries burdened with excessive debt will find it much more difficult in the future to negotiate the relief they need to pay their obligations.
Without diving into the legal complexities of the case, the court ruling favoured a hedge fund that bought Argentine bonds at a steep discount just prior to the country’s default in 2001. In 2005, when Argentina offered to settle with its creditors by giving them partial payment on their claims, this hedge fund--which has been appropriately labeled a “vulture investor”--refused to go along. Instead, the hedge fund filed a lawsuit demanding full satisfaction of its claims, including principal and interest. The court has given the investor enormous leverage over Argentina, by making it illegal for Buenos Aires to send payment to investors who had accepted the restructuring unless the vulture investor receives full payment.
It is not clear yet how the situation will be resolved. At present, Argentina has gone again into default, though it may reach a settlement with the investor. As a result of these new legal considerations in the world of sovereign debt, the scales have been tilted massively and excessively against debtor countries. It is hard to see how a satisfactory outcome will be achieved the next time a country with unsustainable debt is stricken by crisis.
On a positive note, the IMF has proposed improved rules that would restrain its ability to lend to countries with unsustainable debts to avoid repeating the mistake it made with Argentina. The Fund circumvented its rules in the case of Greece, and clearly needed to establish new ones. But it is far from clear whether the Fund will truly be more resolute and stick to its new rules the next time a case like this arises, or whether it will again find a loophole.
Separately, efforts to reform IMF governance remain hamstrung because the U.S. Congress has refused to approve the necessary legislation."
"Global macroeconomic performance continues to improve slightly overall, but medium-term prospects do not look favourable. The problem is not a lack of monetary cooperation. The problem is a continuing “fear of fiscal.” Despite a sharp drop in government borrowing in many countries as the recovery has gradually taken hold and “consolidation” has continued. Few, if any governments are willing to use the room to maneuver. Consequently, too much of the policy burden still falls on monetary policy.
These imbalances cause two problems. First, the effectiveness of monetary policy actions is constrained by the zero lower bound on interest rates. Quantitative easing and other unorthodox actions can mitigate the constraints to some extent, but the limited effectiveness is still evident. Second, the longer interest rates remain close to zero, the more incentives will be distorted (away from saving and with limited stimulus to investment).
In addition to this general problem, one must be concerned that the Euro area does not appear to be closer to a sustainable path than it was five years ago. Unemployment in the southern regions remains unsustainably high, and the contrast in the requirements for equilibrium between north and south becomes more of an obstacle the longer it persists. Also, in North America, no one is seriously addressing the sluggishness of the recovery. Even if the U.S. Administration were to put forth a credible plan, founded on a return to fiscal stimulus, the dysfunctional Congress would surely refuse to take it up.
These concerns make a deflation-driven financial crisis ever more likely. In such a scenario, the ongoing failure of the U.S. Congress to approve the 2010 IMF reform package--action that would help ensure that the IMF would have the resources and the credibility to manage the crisis—is especially worrisome."
"The global economy is on a lower growth track than generally predicted over the last year, and projections for European and Japanese growth prospects are disappointing. On the plus side, the worry that the BRICS Bank would be the beginning of a fragmented system was misplaced. A close reading of the Articles of Agreement indicate that the BRICS Bank will not be an influential player for years, if ever.
In May, Bill White contended that “It’s déja vu, all over again”; referring to 2007 when the global economy was an accident waiting to happen and policy makers failed to see it coming. He argued that the situation we face today is more fraught with danger than in 2007.
The BIS annual report, issued in late June, argued that that the world could not continue to rely on debt as the main engine of growth. That with extraordinary accommodative monetary policy, “countries could at some point find themselves in a debt trap: seeking to stimulate the economy through low interest rates encourages even more debt, ultimately adding to the problem it is meant to solve”. There does not appear to be a Plan B should American inflation increase to the point where it would trigger markets to panic."
"In June this year, the IMF published a review of its lending framework, which included the staff’s proposal to unwind the systemic waiver on exceptional access. This review was accompanied by a proposal on reprofiling future debt treatments where sustainability is uncertain. The IMF’s release of a paper on improvements to collective action clauses (CACs) and aggregation at this year’s Fall Meetings were a useful step forward and complementary to other proposals, such as the Sovereign Debt Forum, sovereign CoCos [contingent convertible bonds], and possible arbitration frameworks.
These developments are offset, however, by the lack of movement on sovereign debt issues at the G20, the continued delay by the US Congress in ratifying the IMF’s quota reforms, and the possible fragmentation of the international system occasioned by the still nascent BRICS New Development Bank (NDB) and Contingent Reserve Arrangement (CRA)."
"Countries continue to be inward looking in addressing their domestic concerns. Europe remains in a fragile state with no substantive progress either in terms of a sustained recovery or in terms of structural reforms requiring sovereigns to give up some of their authority. Lastly, emerging countries continue to go their own way with no progress on IMF reform."
"Significant problems of coordinating macroeconomic adjustment in response to Europe’s persistent economic crisis exist in the European Union (EU) including the following: Germany's reluctance to use macroeconomic policies to stimulate domestic spending, France's weak fiscal expenditure management and the resulting excessive fiscal deficit, and major fiscal problems of peripheral countries in the EU. These developments are signs of weakening cooperation in macroeconomic policy within the EU. These problems would be seriously exacerbated if political tensions between Russia and Ukraine induced Russia to implement policies such as disruptions in supplies of natural gas to Western Europe, which would create additional macroeconomic policy coordination problems in the EU member countries over the coming winter.
Macroeconomic policies in key emerging market countries, while now tending to be overly expansionary, do not appear to be a major source of serious macroeconomic disruptions over the next few years.
In the United States, in the context of a slow but noticeable strengthening of output growth, employment is improving, inflation remains low, and the federal government's fiscal position has strengthened more rapidly than most analysts had expected.
With regard to international financial institutions, the IMF is engaged in a major strengthening of bilateral and multilateral surveillance of its member countries’ economic and financial policies in the context of its 2014 Triennial Surveillance Review, which will be completed by its executive board later this month. With the bolstered procedures that are likely to result from this review, the Fund could be positioned to play a stronger role in the governance of international macroeconomic policy coordination. It is also noteworthy that the Fund has explicitly recognized that major financial system crises such as that of 2007 – 2008 lead to severe and prolonged macroeconomic recessions. Therefore, deeper analysis of emerging financial system vulnerabilities by the Fund staff are crucial to its ability to predict and address major financial crises that could lead to severe and prolonged periods of weak macroeconomic performance.
In terms of monetary policy, the situation in the key reserve-currency countries and regions remains uncertain. The US appears to be giving some signals that it will begin to withdraw the excessive stimulus that it has pumped into the global economy since November 2008. However, there is a significant risk that the withdrawal of this monetary stimulus will be implemented too slowly to maintain price stability in the US, as well as in other economies that link their currencies closely to the dollar over the medium term. In these circumstances, the degree of maneuverability for both the Bank of Japan and the European Central Bank will remain narrow. Thus, the ability of US policymakers to 'get it right' in their timing of the withdrawal of monetary stimulus and the return to an orthodox stance of monetary policies over the medium term will be crucial to the progress of macroeconomic policy cooperation.
For the above reasons I have given a guardedly positive assessment of 45 %, which basically anticipates that there will be some modest progress in fiscal and macroeconomic policy cooperation over the longer term, though not necessarily over the next two or three years."
"There are a number of concerning issue areas in the international macroeconomic system that illustrate the lack of meaningful progress in macroeconomic policy coordination.
The absence of evolution and the lack of commitment to improving the governance of sovereign debt restructuring is a glaring gap in international economic governance. Additionally, the legal uncertainty created by the U.S. court decision on Argentina, the numerous challenges faced by Europe in handling Greece’s sovereign debt restructuring, and the rising levels of public debt in developed and developing economies have highlighted the importance of reform.
The Eurozone’s continuing struggles is also a cause for concern. As the world’s largest economy by nominal GDP, the Eurozone’s lagging recovery is impeding global economic growth. Europe’s failure to restore growth highlights a number of important vulnerabilities in the European political and economic system. Europe’s unwillingness to commit to a cooperative approach to fiscal consolidation and its inability to endorse pro-growth fiscal and structural reform policies for the beleaguered southern European economies is the core driver of Europe’s failure to jump start economic growth. The failure to pursue expansionary fiscal policies has placed an immense burden on the ECB’s monetary policy. The ECB’s monetary policy is also beleaguered by Europe’s unwillingness to pursue aggressive, cooperative, and expansionary monetary policy. Despite the new expansionary monetary policy package that was recently by the ECB, monetary policy has not done enough to address Europe’s current state of low economic growth.
Finally, the failure to pass IMF quota reform as a consequence of the U.S. Congress’ continued reticence on this issue is disappointing. The failure of the IMF to reform its quota and inability to keep up with the changing power dynamics of the international economic system will have spillover effects into other important issue areas."
"There have been major areas of regression over the past year. Macroeconomic coordination has been poor in dealing with the implications of the exit from accommodative monetary policies. The financial market turmoil in several emerging market countries following the Fed’s taper announcement is the obvious case in point. In this context, calls for greater central banks’ coordination have fallen on deaf ears and there are no clear signals that we will see more in the coming months.
Likewise, the momentum behind addressing global macroeconomic imbalances has lost most of its steam. This is also the case within the European Union where imbalances have been at heart of the Eurozone crisis. Indeed, in Europe, addressing imbalances is conceived not as a matter of international coordination but as an exercise of unilateral adjustment by deficit countries.
Furthermore, the failure to move on with IMF governance reform due to continued Congressional opposition further attests to the deteriorated climate of international economic cooperation. The newly created BRICs bank and contingency reserve arrangement hardly improve the picture. These outcomes reflect the resentment of emerging markets and injects elements of fragmentation in to the international financial architecture. However, at this stage, the jury is still out as to whether these new facilities will provide a healthy competition for the Bretton Woods institutions."
"In the Eurozone, expansionary monetary policy has not been coordinated with (domestic) fiscal policies. This has meant that the anticipated gains have not been fully realized. The end of the surveillance program implemented by the International Monetary Fund (IMF), the European Union (EU) and the European Central Bank (ECB) for some countries (e.g. Ireland) represents a step forward toward growth and recovery. At the same time, the failure to lower public spending and reduce public debt within highly indebted European countries (Italy, Greece, Spain and France) in the presence of poor economic performance for 2014 and 2015 should push for a revised approach to effectively achieve growth (i.e. austerity should be reconsidered).
In the last year, international institutions have not addressed the sovereign debt crisis resolution framework- a necessary pillar for stabilizing expectations in the global financial system."
"Some progress on improving the governance of sovereign debt restructuring has been made. In June, the IMF staff presented a paper to the Executive Board with a very sensible proposal for institutionalizing a quasi-automatic extension of maturities in crises where the IMF does not conclude that public debt is sustainable with a high probability. The proposal was discussed and referred for further study. The very fact that the proposal made it to the Executive Board is a great sign that the current vacuum in avenues to pursue in severe debt crises is recognized as an issue—even if not a problem. The absence of any apparent follow up, however, does not bode well for actual action.
IMF quota reform is remains stuck in the US Congress with no clear signs that it could budget out of limbo. The Ukraine crisis stoked a faint glimmer of hope that Congress would act, but that hope fizzled. We will have to see after the mid-term elections."
"International policy cooperation was relatively straightforward at the height of the Global Financial Crisis when stimulative domestic macroeconomic policies were necessary for stabilizing both domestic and global demand and financial markets. But, international cooperation has become more complicated because economies now require different levels of stimulus. Every time a step forward is taken (e.g., a recognition of the potential harm from spillover effects of monetary policy), one or two steps back are also taken (e.g., lack of progress on IMF voting rules, weakening of the role of macro surveillance).
A major threat to the global economy is monetary policy uncertainty in advanced economies, most notably in the United States, where the Federal Reserve seems unable to find an easy exit out of the current combination of ultra-low interest rates and quantitative easing. Even though US data is far from being dire, each time the stock market wiggles the Fed appears to hedge the timing of the exit. At the same time, forward guidance appears to have lost its appeal and actually risks becoming a source of financial volatility. Emerging market economies, India and Brazil in particular, have expressed dissent regarding the effects of accommodative monetary policies on world growth. As the recovery prolongs, disagreement about the way forward is intensifying and the progress in policy cooperation achieved in the early phases of the crisis is slowly being undone, most notably within the G20.
As discussions among central bankers concerning secular stagnation and low wage growth become more frequent, their role in fostering global growth and cooperation is being obscured. This type of outlook seems far from central bankers’ usual remit, making it unclear whether monetary policy can do much more than it has so far.
Despite the importance of international policy coherence in fostering a stronger and more stable global recovery, it is likely that substantial progress in macroeconomic and international monetary cooperation will stall until the next large crisis strikes.."
"The IMF quota increase remains stuck in Congress since 2010, the IMF’s proposals for a new lending framework and creditor “bail-in” has not yet been accepted by IMF members, and ICMA proposals on “pari passu” and aggregation clauses are still under discussion, while Argentina’s 2005 and 2010 debt restructuring is in limbo."
Estimates between 80% and 100% represent the ability to withstand the pressures of a severe shock to the world economy and to prevent sustained unemployment or inflation.
Estimates between 60% and 79% reflect conditions that inspire confidence and that are conducive to growth.
Estimates between 40% and 59% indicate a level of progress sufficient to inspire confidence in the long term, but with non-negligible risks to the world economy if confronted by shocks.
Estimates between 20% and 39% represent some regression, pointing to non-negligible risks to the stability of the world economy if confronted by large-scale shocks.
Estimates between 0% and 19% represent major regression toward a fractious and chaotic international system, with significant risks to the stability of the world economy.
Estimates between 80% and 100% represent the ability to withstand the pressures of a severe shock to the world economy and to prevent sustained unemployment or inflation.
Estimates between 60% and 79% reflect conditions that inspire confidence and that are conducive to growth.
Estimates between 40% and 59% indicate a level of progress sufficient to inspire confidence in the long term, but with non-negligible risks to the world economy if confronted by shocks.
Estimates between 20% and 39% represent some regression, pointing to non-negligible risks to the stability of the world economy if confronted by large-scale shocks.
Estimates between 0% and 19% represent major regression toward a fractious and chaotic international system, with significant risks to the stability of the world economy.
Estimates between 85% and 100% represent the ability to withstand the pressures of a severe, unanticipated major shock to the world economy, preventing sustained unemployment or inflation. International agreements are effective. Key institutions have strengthened their governance and accountability and have the tools and resources required to perform effectively.
Estimates between 70% and 84% reflect some progress that inspires confidence in the stability of the world economy against large-scale shocks Conditions are conducive to inclusive global economic growth.
Estimates between 55% and 69% indicate a level of progress sufficient to inspire confidence in long term, sustainable balanced growth, but with non-negligible risks to the world economy if confronted by shocks.
Estimates between 45 and 54% represent stagnation in progress or regression, with low to negligible developments in international discussions or a lack of displayed interest. Public documents exclude mention of the topic or pay minimal due to the issue, with little to no developments in stability or growth.
Estimates between 30 and 44% represent a level of regression sufficient to cause concern for the direction of long term growth. Conditions have not yet worsened significantly, but the global economy shows signs for concern.
Estimates between 15% and 29% represent some regression that instills concern for the stability of the world economy against large-scale shocks. Indications suggest insufficient progress and conditions unfavorable to long term growth.
Estimates between 0% and 14% represent major regression towards a fractious and chaotic international system, with significant risks to the stability of the world economy. Multilateral negotiations are at a standstill, and key institutions lack the tools and resources to perform effectively.