You've
heard it before: someone runs into credit card or mortgage payment
problems and needs to work out a payment plan to avoid going bankrupt.
What does an entire country do when it runs into a similar debt
problem? For a number of emerging economies issuing sovereign debt is
the only way to raise funds, but things can go sour quickly. How do
countries deal with their debt while striving to grow?
Most
countries – from those developing their economies to the world's
richest nations – issue debt in order to finance their growth. This is
similar to how a business will take out a loan to finance a new project,
or how a family might take out a loan to buy a home. The big
difference is size; sovereign debt loans will likely cover billions of
dollars while personal or business loans can at time be fairly small.
Sovereign Debt
Sovereign
debt is a promise by a government to pay those who lend it money. It
is the value of bonds issued by that country's government. The big
difference between government debt and sovereign debt is that
government debt is issued in the domestic currency, while sovereign
debt is issued in a foreign currency. The loan is guaranteed by the
country of issue.
Before
buying a government's sovereign debt, investors determine the risk of
the investment. The debt of some countries, such as the United States,
is generally considered risk free, while the debt of emerging or
developing countries carries greater risk. Investors have to consider
the government's stability, how the government plans to repay the debt,
and the possibility of the country going into default. In some ways,
this risk analysis is similar to that performed with corporate debt,
though with sovereign debt investors can sometimes be left significantly
more exposed. Because the economic and political risks for sovereign
debt outweigh debt from developed countries, the debt is often be given a
rating below the safe AAA and AA status, and may be considered below
investment grade.
Debt Issued in Foreign Currencies
Investors
prefer investments in currencies they know and trust, such as the U.S.
dollar and pound sterling. This is why the governments of developed
economies are able to issue bonds denominated in their own currencies.
The currencies of developing countries tend to have a shorter track
record and might not be as stable, meaning that there will be far less
demand for debt denominated in their currencies.
Risk and Reputation
Developing
countries can be at a disadvantage when it comes to borrowing funds.
Like investors with poor credit, developing countries must pay higher
interest rates and issue debt in foreign stronger currencies to offset
the additional risk assumed by the investor. Most countries, however,
don't run into repayment problems. Problems can arise when
inexperienced governments overvalue the projects to be funded by the
debt, overestimate the revenue that will be generated by economic
growth, structure their debt in such a way as to make payment only
feasible in the best of economic circumstances, or if exchange rates
make payment in the denominated currency too difficult.
What
makes a country issuing sovereign debt want to pay back its loans in
the first place? After all, if it can get investors to pour money into
its economy, aren't they taking on the risk? Emerging economies want to
repay the debt because it creates a solid reputation that investors
can use when evaluating future investment opportunities. Just as
teenagers have to build solid credit in order to establish
creditworthiness, countries issuing sovereign debt want to repay their
debt so that investors can see that they are able to pay off any
subsequent loans.
The Impact of DefaultingDefaulting
on sovereign debt can be more complicated than defaults on corporate
debt because domestic assets cannot be seized to pay back funds.
Rather, the terms of the debt will renegotiated, often leaving the
lender in an unfavorable situation, if not an entire loss. The impact
of the default can thus be significantly more far-reaching, both in
terms of its impact on international markets and of its effect on the
country's population. A government in default can easily become a
government in chaos, which can be disastrous for other types of
investment in the issuing country.
The Causes of Debt Default
Essentially,
default will occur when a country's debt obligations surpass its
capacity to pay. There are several circumstances in which this can
happen:
- During a currency crisis
The
domestic currency loses its convertibility due to rapid changes in the
exchange rate. It becomes too expensive to convert the domestic
currency to the currency in which the debt is issued.
- Changing economic climateIf
the country relies heavily on exports, especially in commodities, a
significant reduction in foreign demand can shrink GDP and make
repayment costly. If a country issues short-term sovereign debt, it is
more vulnerable to fluctuations in market sentiment.
- Domestic politicsDefault
risk is often associated with unstable government structure. A new
party that seizes power may be reluctant to satisfy the debt
obligations accumulated by the previous leaders.
Debt Default Throughout History
There have been several prominent cases in which emerging economies got in over their heads when it came to their debt.
- North Korea (1987)Post-war
North Korea required massive investment in order to jump start
economic development. In 1980 it defaulted on most of its
newly-restructured foreign debt, and owed nearly $3 billion by 1987.
Industrial mismanagement and significant military spending led to a
decline in GNP and ability to repay outstanding loans.
- Russia (1998)A
large portion of Russian exports came from the sale of commodities,
leaving it susceptible to price fluctuations. Russia's default sent a
negative sentiment throughout international markets as many became
shocked that an international power can default. This catastrophic event
resulted in the well documented collapse of long-term capital
management.
- Argentina (2002)Argentina's
economy experienced hyperinflation after it began to grow in the early
1980s, but managed to keep things on an even keel by pegging its
currency to the U.S. dollar. A recession in the late 1990s pushed the
government to default on its debt in 2002, with foreign investors
subsequently ceasing to put more money into the Argentine economy.
Investing in Debt
Global
capital markets have become increasingly integrated in recent decades,
allowing emerging economies access to a more diverse pool of investors
using different debt instruments. This gives emerging economies more
flexibility, but also adds uncertainty since debt is spread over so
many parties. Each party can have a different goal and tolerance for
risk, which makes deciding the best course of action in the face of
default a complicated task.
Investors
purchasing sovereign debt have to be firm yet flexible. If they push
too hard on repayment, they might accelerate the economy's collapse; if
they don't press hard enough, they might send a signal to other debtor
nations that lenders will cave under pressure. If restructuring is
required, the goal of the restructure should be to preserve the asset
value held by the creditor while helping the issuing country return to
economic viability.
- Incentives to repay
Countries
with unsustainable levels of debt should be given the option of
approaching creditors to discuss repayment options without being taken
to task. This creates transparency and gives a clear signal that the
country wants to continue loan payments.
- Providing restructuring alternativesBefore
moving to debt restructuring, indebted nations should examine their
economic policies to see what sorts of adjustments can be made to allow
them to resume loan payments. This can be difficult, if the government
is headstrong, since being told what to do can push them over the edge.
- Lending prudentlyWhile
investors might be on the lookout for diversification into a new
country, that doesn't mean that flooding cash into international
securities will always have a positive result. Transparency and
corruption are important factors to examine before pouring money into
expensive endeavors.
- Debt forgivenessDue
to the moral hazard associated with letting debtor countries off the
hook, creditors consider wiping a country's debt clean to be the
absolute last thing that they want. However, countries saddled with
debt, especially if that debt is owed to an organization such as the
World Bank, can seek to have their debt forgiven if it will create
economic and political stability. A failed state can have a negative
effect on surrounding countries.
Conclusion
The
existence of international financial markets makes funding economic
growth a possibility for emerging economies, but it can also make debt
repayment troublesome by making collective agreements between creditors
more complex. With no strict mechanism in place to make the resolution
of problems streamlined, it is important for both the sovereign debt
issuer and investors to come to a mutual understanding – that everyone
is better off coming to an agreement instead of letting the debt go
into default.
Government
bonds are usually referred to as risk-free bonds, because the
government can raise taxes to redeem the bond at maturity. Some counter
examples do exist where a government has defaulted on its domestic
currency debt, such as Russia in 1998 (the "ruble crisis"), though this
is very rare. As an example, in the US, Treasury securities are
denominated in US dollars. In this instance, the term "risk-free" means
free of credit risk. However, other risks still exist, such as currency
risk for foreign investors (for example non-US investors of US Treasury
securities would have received lower returns in 2004 because the value
of the US dollar declined against most other currencies). Secondly,
there is inflation risk, in that the principal repaid at maturity will
have less purchasing power than anticipated if the inflation outturn is
higher than expected. Many governments issue inflation-indexed bonds,
which should protect investors against inflation risk.