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### Viewing cable 04ANKARA6026, Problems with Banking Law Negotiations

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04ANKARA6026 | 2004-10-22 14:59 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Ankara

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 03 ANKARA 006026

    SIPDIS

    STATE FOR EUR/SE AND EB/IFD
    TREASURY FOR INTERNATIONAL AFFAIRS - RADKINS AND MMILLS
    NSC FOR BRYZA AND MCKIBBEN

    SENSITIVE

    E.O. 12958: N/A
    TAGS: EFIN ECON TU
    SUBJECT:  Problems with Banking Law Negotiations

    REF: ANKARA 5998

    This is a joint cable with Congen Istanbul.

    ¶1. (Sbu) Summary: Despite months of extensive consultation
    with bankers, and an explicit-but now postponed-IMF
    deadline, a new banking law drafted by Turkish regulators is
    considered far too restrictive by both bankers and the IMF.
    Bank regulators and the GOT are working to revise the text,
    but the latest set of proposals from the regulators remains
    unacceptable to the IMF and World Bank.  Setbacks in the
    negotiations could well require an additional IMF-World Bank
    mission in mid-November. End Summary.

    Background:
    ----------

    ¶2. (Sbu) At the beginning of 2004, when the IMF staff and
    the GOT set the structural reform agenda for the year, it
    was agreed that Turkey needed a completely revised banking
    law.  For months the banker's association and its membership
    gave input and bank regulators looked at other countries
    practices on issues such as banning bank owners from also
    owning news media, industrial groups, pension funds, or
    being connected with political parties.  The introduction of
    bans on any of these cross-holdings would have been highly
    disruptive to some of Turkey's largest banks, most of whose
    ownership structures violate at least one of these
    restrictions.  In the end, tightening cross-holding
    requirements were dropped as too restrictive and, according
    to Bank Regulatory and Supervisory Agency (BRSA) Chairman
    Tevfik Bilgin, as not comparable to rules in other OECD
    countries.

    ¶3. (Sbu) After postponement of a June 30 IMF deadline, a
    draft written by BRSA staff was completed in August.  In
    recent weeks, however, press reports and post contacts have
    made clear that it is unacceptable to the bankers
    association, which has successfully lobbied the IMF to take
    up many of its issues.  Because of the controversy and the
    press of other business, including the 2005 budget, Deputy
    Prime Minister Sener indicated last week that parliament
    will only take up the banking issue in the new year.

    Bankers Critical:
    ----------------

    ¶4. (Sbu) In a series of recent press interviews and
    statements, Turkey's leading bankers, led by Bankers'
    Association Chairman and Disbank CEO Ersin Ozince, have
    strongly criticized the draft law as far too intrusive into
    bankers' actions.  Ozince noted that over-regulation could
    cause the sector to cease functioning.  He attacked a
    provision that would require banks to sell their non-bank
    assets and argued that banks needed to be profitable for the
    sector to be strong. Ozince called for modifications in the
    banking law to be limited to measures necessary for EU
    compliance.

    5.(Sbu) In a recent meeting with Istanbul econoff, Bankers
    Association Secretary General Ekrem Keskin elaborated on
    bankers' concerns.  In the association's view, the new law's
    provisions penalize entrepreneurship and risk-taking and are
    not well adapted to Turkish conditions.  As both Keskin and
    the head of one leading international bank in Turkey told
    us, the draft is too punitive.  In the latter's view, it is
    based on the belief that if Turkey had "imprisoned bank
    owners" before 2001, it could have avoided that year's
    banking crisis.  As a result, it makes no distinction
    between bank losses caused by macroeconomic conditions and
    those resulting from "bad faith."  In addition, in a
    revealing lack of faith in Turkey's regulators, the act
    spells out in extraordinary detail the responsibilities of
    the BRSA, essentially transferring regulatory power from
    that organization to the parliament, and in the
    association's view turning the board itself into an audit
    and inspection agency.   An added complication is the
    continuing struggle for authority over the sector between
    the recently separated BRSA and Savings Deposit Insurance
    Fund (SDIF).  The latter hopes to retain a role in banking
    supervision, and it and the Banking Board continue to argue
    over who should set premium levels for deposit insurance.
    More generally, Keskin noted that Turkish banking law has
    been modified a number of times in recent years, and already
    is "85 percent" compatible with EU standards.  The constant
    changes create a climate of uncertainty that inhibit the
    sector.
    ¶6. (SBU) The association criticized the draft law's
    excessive capital adequacy requirements, overly strict
    limits on bank's non-financial participations, and an
    "unworkable" requirement that each bank board have two
    "independent" members with added authority.  The latter
    provision, in particular, is difficult for banks to
    implement, in Keskin's view, and he suggested it may be a
    way for the Turkish government to give its supporters a
    larger role in the financial sector.  Bankers also worry
    that the law will make it harder for Turkish banks to meet
    the Basle-II capital adequacy requirements.
    ¶7. (Sbu) Ergun Okur, Executive Vice President of Oyak Group
    and a board member of Oyak Bank, told econoffs no one could
    do banking with the law as drafted.  Another prominent
    banker added that the draft law would likely fail in its
    goal of preventing a repeat of past problems in the sector,
    for while it would likely cause good capital and management
    to leave the sector: "daring people would stay."

    IMF Staff Sides with Banks:
    --------------------------
    8.(Sbu)  The IMF Resrep told econoffs that IMF banking
    experts, after a closer look at the text, were sympathetic
    to the concerns raised by bankers.  (Keskin noted that after
    the IMF's initial clearance of the text, the association had
    a full-day meeting with the fund to lay out its concerns.)
    The Resrep said the Central Bank also had concerns that the
    law as drafted impinged on its ability to conduct monetary
    policy, by specifying circumstances under which the Central
    Bank would be required to provide liquidity to banks.  The
    IMF objected to the draft law not taking into account the
    findings of the commission of inquiry on the Imar Bank
    collapse.  Specifically, the commission and other observers
    had cited the sworn bank auditors' monopoly of bank
    inspections as overly restrictive in terms of the expertise
    that could be brought to bear.  On the other hand, the BRSA
    Vice President in charge of on-site inspection (sworn
    auditors), Mustafa Korhan, told econoffs that the sworn bank
    auditors support allowing information technology experts to
    join in on-site inspections, in the interest of avoiding
    another Imar Bank-like case.

    ¶9. (Sbu) The Resrep confirmed that the draft would set
    capital requirements above EU standards-an unnecessarily
    onerous requirement at a time when banks are slowly
    rebuilding their capital from the effects of the 2001
    crisis.  The law would also mandate regular ratings by
    rating agencies-an unnecessary cost in the view of both
    bankers and the IMF.  The law would force banks to finance a
    training center for bankers, and includes a provision
    granting State-owned banks the same seniority in debt
    workouts currently enjoyed by the deposit insurance agency,
    the SDIF.  The latter provision seems inconsistent with the
    IFI-mandated state bank privatization strategy.  Both
    bankers and the IMF objected to a provision that would
    weaken bankers' rights in workouts, by making an arbitral
    body's decisions binding only on the banks rather than on
    debtors as well. Finally, the IMF objected to retention of a
    loophole on connected lending.

    Unexpected BRSA Proposal Stops Progress:
    ---------------------------------------
    ¶11. (Sbu) Though the IMF Deputy Resrep told econoff last
    week that Fund staff were encouraged by a newly-agreed
    negotiating process that would allow the GOT to take over
    the process-albeit with continued BRSA involvement-in an
    October 20 meeting, a World Bank banking expert told
    econoffs the whole process has been stopped by the latest
    BRSA draft. He said the latest draft included the proposal
    that the bankers association would take over management of
    deposit insurance.  Aside from the conflict of interest
    problem, he pointed out the association had no experience
    with this role.  Worse, the World Bank expert said SDIF
    officials with whom he spoke had no prior knowledge of
    BRSA's proposal to take away one of SDIF's core functions.

    ¶12. (Sbu) The World Bank official said IMF Mission Chief
    Moghadam forcefully rejected the new draft, and went over
    BRSA Chairman Bilgin's head to seek-and later
    obtain-Minister Babacan's agreement to go back to
    negotiating on the basis of the August draft.  The World
    Bank official said this latest development meant the IMF and
    World Bank banking law experts would return in two weeks and
    that negotiations over a new Standby would have to be
    further delayed.

    ¶13. (Sbu) Even if a new draft can be worked out with the IMF
    and World Bank, it would still have to be approved by the
    Council of Ministers before the World Bank's condition under
    its PFPSAL3 loan facility would be met.  For this reason the
    World Bank official doubted the second tranche of this
    facility would go to the bank board before January or
    February.

    Comment and Conclusion:
    ----------------------
    ¶14. (Sbu) The group of current and former sworn bank
    auditors-led by BRSA President Bilgin-have a reputation as a
    tight-knit cadre with a tendency to distrust outsiders,
    especially bankers.  It seems they got carried away in
    drafting the new banking law.  Bilgin's proposal-from out of
    left field-for the bankers association to take over deposit
    insurance demonstrates poor judgment but also points to
    serious problems between BRSA and SDIF.

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