"Too big to fail" has been the reason for many of the governmental bailouts in the last few months: Bear Sterns, Fannie and Freddie, AIG, Citigroup. If we are going to avoid situations like this in the future, we have to address this problem.
First, though, let me give an example of how this problem can arise. It is not unusual for investment banking firms to be highly leveraged; i.e., to have a lot more debt than equity. A homeowner who puts down 20% on a house and takes out an 80% loan would have a debt-to-equity ratio of 4 to 1. With 10% down, the ratio becomes 9 to 1. Some of the investment banks on Wall Street had, before the crisis, a ratio of 33 to 1; in other words, for every dollar of equity, they had $33 of debts. When the value of your assets is going up, that is not a problem. In fact it can be a plus because it lets you make even more money. The problem comes if the value of your assets goes down, even a little. It doesn’t take much of a decrease in the value of your assets for you to have more debts than assets. If your debts are more than your assets, either you need to get more assets (for example, by attracting more capital) or you are going to go out of business. (The more short-term debt you have, the quicker you will tend to go out of business.)
Companies go out of business all the time. Usually, it is no big deal. But it is a big deal when the companies with financial problems are so big. Investment banks, mortgage companies, insurance companies have all become so big that their bankruptcy can have a devastating effect on the economy as a whole. They have, in effect, become so big that they cannot be allowed to fail. They have to be bailed out because it is cheaper for the economy to bail them out than to suffer the consequences of their failure.
That is a problem. If a company is too big that it cannot be allowed to fail, the management is going to know it, or at least suspect it, and they are going to take too many risks. Why be cautious if you know, or at least suspect, that you will not be allowed to fail? Why not just take chances? If you succeed, you get the rewards. If you fail, the government will bail you out.
But even if a big company is being managed properly, even if management is not taking inappropriate risks, the situation is still the same if mistakes are made. The costs to society of the company’s failure are the same. The company cannot be allowed to fail, and the government has to bail it out.
So what can we do? One possibility is to set special rules for firms that are so big that, if they fail or look like they might fail, they would have to be bailed out by the government. For example, instead of letting big investment banks have a debt to equity ratio of 33 to 1 (or more), perhaps they could be required to have at least 6% equity (i.e., a 16 to 1 ratio). Alternatively, maybe we need to impose some size limit on certain firms so that they cannot get so big that they cannot be allowed to fail. This rule would not apply in all industries, and it would only prevent companies from getting bigger than a certain size, basically the size above which the costs to the economy of their failure would be so great that they would have to be bailed out instead of allowed to fail.
Companies and their management will complain this is unfair, that it is interfering with the free market. Well, it is unfair to the rest of us to have to bail them out. It is not a free market if the government has to bail them out to prevent them from going bankrupt.
Free market proponents will argue that, in a free market, companies tend to the most efficient size. If small is most efficient, companies will stay small, but if really large is more efficient, that is what is best. That is an argument I respect, but recent months have shown there is an external cost to size that may not be included the market’s calculation of efficiency. It is, then, government’s job to set appropriate rules to guard against these unincluded costs.
The free market is a wonderful system. It is the best and most efficient system for transmitting economic information that has been devised. But it is not perfect. It has its problems, and one of those problems is that firms can get so big they cannot be allowed to fail. In such a situation it is government’s job either to set rules so companies that get to a certain size have a big enough margin for error that they are unlikely to fail or to not let companies get so big that they have to be bailed out instead of being allowed to fail.
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