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巴塞尔终局:银行资本要求与国际标准制定的未来

Basel Endgame: Bank Capital Requirements and the Future of International Standard Setting
Journal of Economic Perspectives · 2025 · Cecchetti, Stephen、Kress, Jeremy、Schoenholtz, Kermit

中文摘要

2023 年,美国监管机构提出了备受期待的银行资本要求全面改革方案——"巴塞尔终局"(Basel Endgame)。该提案旨在使美国符合巴塞尔银行监管委员会为应对 2008 年全球金融危机而制定的国际标准。然而,银行业认为该提案将带来高昂的资本要求提升,对其的激烈反对实际上使该提案胎死腹中。在本文中,我们阐述银行资本的宗旨以及银行监管国际标准制定的历史。随后我们重点介绍巴塞尔终局最重要的方面,以及支持和反对采用该规则的各种论点。我们指出,这场辩论不必要地混淆了两个不同的问题:(1) 美国是否应遵守国际监管标准;(2) 美国是否应提高大型银行的资本要求。尽管有充分理由对这两个问题均给出肯定回答,但二者无须一并处理。换言之,美国可以以资本中性(即不改变资本要求)的方式实施国际标准,以维护银行监管领域的全球合作,而将提高资本要求这一单独问题留待他日解决。

Abstract

In 2023, US regulators proposed the "Basel Endgame," a long-awaited overhaul of bank capital requirements. The proposal aimed to bring the United States into compliance with international standards established by the Basel Committee on Banking Supervision in response to the 2008 Global Financial Crisis. However, fierce industry opposition to what banks viewed as a costly increase in capital requirements effectively killed the proposal. In this essay, we describe the purpose of bank capital and the history of international standard-setting in bank regulation. We then highlight the most important aspects of the Basel Endgame, as well as the arguments for and against adopting the rule. We show that the debate unnecessarily conflated two distinct questions: (1) whether the United States should comply with international regulatory standards, and (2) whether the United States should raise large banks' capital requirements. While there are strong grounds to answer both questions in the affirmative, they need not be addressed together. That is, the United States can implement international standards in a capital-neutral manner to preserve global cooperation in bank regulation, leaving the separate question of raising capital requirements for another day.
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