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Overview and conclusions
1. Central banks exist for different purposes than commercial banks. They pursue
national welfare, not profits. Their financial results are often a poor guide to
their success.
2. Central bank gains and losses belong to society. Beyond this, financial results
may be important for a central bank even though it can always create money to
pay its bills, cannot be declared bankrupt by a court, and does not exist to make
profits. Losses or negative capital may raise doubts – however erroneous –
about the central bank’s ability to deliver on policy targets, and expose it to
political pressure.
3. Standalone financial strength can therefore buttress a central bank’s credibility,
especially where that has been weakened by its historical record, institutional
arrangements or the political climate. Conversely, where credibility is otherwise
unquestioned, financial strength may add little to a central bank’s capacity to
execute policy successfully. This alone makes it challenging to say what level of
financial backing a given central bank needs.
4. In addition, financial strength should be scaled to the financial demands of the
functions for which the central bank has independent responsibility. These
financial demands may be much greater in a crisis than in normal times. Recent
experience underscores this point. It is no easy task to assess the financial
demands that might be encountered in times of stress for central bank
operations, and to understand the specific crisis responsibilities of central banks.
5. If financial resources are scaled to match possible emergency demands, large
buffers may build up in normal times, particularly for central banks with wideranging
crisis management responsibilities. To ensure that central banks have
independence in deploying them, such buffers need to be on the balance sheet,
and available for use. Achieving this with capital invested in government
securities need not be costly when viewed from the perspective of the whole
public sector. But legal or practical (eg market pricing) limitations related to the
size of the gross public debt, and to the central bank’s ability to hold such debt,
may exist. Moreover, political risks may arise, given what might (wrongly)
appear to be an unneeded pot of public money available to fund desirable
projects.
6. The size of financial buffers needed to assure a continuing independent
operational and policy capability is affected by accounting policies, profit
distribution and recapitalisation mechanisms, capital targets and risk-sharing
arrangements. Decisions on these factors should be made in concert with
decisions on a central bank’s independent responsibilities and its consequent
need for independent financial strength:
 With respect to accounting policies, this may imply departing selectively
but transparently from International Financial Reporting Standards.
 With respect to distribution mechanisms for profits, this requires avoiding
a bias towards decapitalisation or arrangements that impede a rapid
rebuilding of equity.
 With respect to risk-sharing arrangements, again the issue is to match
financial independence with the demands of policy independence.
4 BIS Papers No 71 – The finances of central banks
Exactly how these decisions are integrated is less important than they be
considered as a package – a package designed to support operational and
policy effectiveness even during crisis times, while maintaining throughout the
trust of the community.
7. The need for financial resources is also a function of the risk that a central
bank’s finances may be mistakenly thought important for its capacity to
function, as if it were a commercial bank. The scale of financial resources
required can be reduced by improving the understanding of stakeholders and
observers. High-quality financial disclosure, lucid explanations of links to policy
and operations, and education of financial sector observers, the public and their
political representatives are all important.

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