The reelection of Lula led to an immediate reaction from the markets, the media and academics. The pressure for a fiscal adjustment is intense. In this reading Lula won because of his populism, excessive spending, that has both allowed good economic results (in some simplistic stories, that people didn't get until the social media campaign) and higher interest rates. The higher interest rates are charged since markets don't trust the ability of the government to honor its debts. The fiscal crisis is simply a reflection that there is a large nominal deficit (the primary deficit, once interest payments are excluded, is small), that accumulates into a large public debt, that is growing, arguably because of the deficits and the high interest rates. If the interest rate is higher than the growth of the economy that implies the debt-to-GDP ratio also grows, at least if primary surpluses are not sufficiently large. The notion is that this process cannot go forever—everything that goes up, eventually comes down—and is unsustainable. In short, a fiscal crisis is a solvency crisis. The Treasury cannot pay its obligations.
So far so good. Fiscal crisis means fiscal insolvency. The problem with this story is that it misses the point of what are the institutional mechanisms in which a state can become insolvent. Once this is considered, the conventional story loses most of its relevance. The essential point is that the possibility of fiscal insolvency depends on the monetary regime, which itself reflects the state's capacity to mobilize resources and enforce monetary obligations. The distinction between convertible and inconvertible monetary regimes is crucial.
Under a gold standard, the government promises to convert its monetary liabilities into something it cannot create. Its capacity to issue currency is ultimately constrained by its gold reserves (unless it suspends convertibility). Excessive debt issuance or persistent fiscal deficits coupled with inability to obtain the resources to maintain convertibility, perhaps because of outflows of gold, might lead to a run on reserves and a genuine inability to honor the monetary commitment. As an aside, note my recent post, in which I noted that metallic currencies persisted not because gold or silver possessed some intrinsic monetary virtue, but because states lacked the institutional, administrative, and technical capacity to enforce the use of fiat currencies, particularly beyond their territorial jurisdiction. Metals provided a means of payment and settlement where state authority could not directly guarantee monetary obligations.
In other words, this kind of system in which solvency could become an issue, reflected, to a great extent, the weakness, at least in the monetary sense, of the state.* The same limitations on state power that explain the persistence of metallic standards also help explain why fiscal insolvency was possible under those standards. States needed to mobilize resources from the population through taxation, borrowing, or other means, including coercion. But their capacity to obtain the monetary means necessary to meet their obligations was limited. The important thing is that a fiscal crisis under convertibility was not simply a crisis of confidence. It reflected the state's inability to command sufficient resources, domestically or internationally, to meet its obligations in the required monetary form. The state could not produce gold (in normal circumstances, unless it owned a mine). All of this changes in an inconvertible currency system.
The transition to fiat money should be understood as an expansion of state power (as much as the transition to a fiat global currency, the flexible dollar standard, increased the power of the US). The development of modern taxation systems, public debt markets, and central banking, with significantly more developed administrative capacity and the ability to enforce acceptance of state liabilities, changed the relationship between fiscal policy and monetary obligations. Under an inconvertible fiat monetary regime, the state no longer needs to acquire a commodity or foreign monetary asset to settle obligations denominated in its own currency. It follows that, assuming an operationally supportive central bank, the state cannot become financially insolvent in its own currency. So, the notion that a country would default in its own currency should be taken with skepticism.
Of course, this does not mean that default is impossible. Governments can default because of institutional arrangements or political decisions, such as statutory debt ceilings or restrictions on central bank purchases. But these are self-imposed institutional constraints, not an inherent inability to produce the means of payment. This is the fundamental discontinuity with the metallic regime. The concept of fiscal insolvency, as applied to a sovereign fiat currency issuer, is an inappropriate extension of a problem that belonged to a different monetary regime. But this is exactly what most discussions in the media, and I'm sorry to say, among professional economists, presume.
Under convertibility, fiscal crises could involve a failure to obtain the monetary means of payment, reflecting limitations on the state's capacity to tax, borrow, or command internationally acceptable means of settlement. Under fiat money, the relevant conflict shifts toward the state's capacity to maintain the political and institutional arrangements governing taxation, expenditure, public debt, and the political conflicts that they impinge upon, in particular because they affect the distribution of income. This does not mean the state has unlimited command over real resources. It means that its capacity to make nominal payments is no longer directly constrained by its ability to acquire those resources through taxation or borrowing. It is fundamentally a political problem.
Fiscal crises in modern fiat monetary systems must therefore be distinguished from insolvency and understood primarily as crises of the fiscal regime (on fiscal regimes and their difference with fiscal policy see this post on my Substack). They are political and distributive conflicts over who pays and for what purpose. In the specific case of Brazil, that prompted this short post, the issue at hand, are the political pressures to cut social spending, mostly from groups connected to financial markets. Brazil’s debt is mostly in domestic currency, and the central bank has plenty of dollar reserves, that preclude any possibility of an external crisis. And only an external crisis would limit the ability to pursue fiscal expansion under current circumstances.
While it is true that Brazil does not face an external constraint, it is always a possible risk. The dollar reserves are crucial and must be protected. The United States can issue the dominant international reserve currency because of its position in the global monetary system, supported by, essentially, its military power. Other states may have full monetary sovereignty in the narrow sense that they issue their own inconvertible currency, but cannot compel foreign agents to accept it (for a discussion of that distinction go my last article in Challenge). Consequently, they may face severe external constraints without facing insolvency on their domestic currency debt. That is why Lara-Resende's proposal might end up creating an external crisis in an attempt to solve a fiscal insolvency problem that does not exist.
* As I noted in this paper, the modern international system moved from a silver standard to a pound sterling standard (the gold standard), demonetizing silver, and then to a dollar standard, first still tied to gold (Bretton Woods), and then freed from that constraint.







