The Treasury Department said it would sell $18
billion of American International Group Inc. AIG -2.22%stock in a public offering, slashing its stake by more than
half and making the government a minority shareholder for the first time since
the financial crisis was roaring in September 2008.
The sale will mark a step that seemed hard to imagine four
years ago, when the New
York insurer was effectively nationalized as part of a controversial
financial-industry bailout. The U.S. will move closer to recognizing a
profit on its largest rescue, which included as much as $182 billion of committed aid, and AIG will
revert to being mostly nongovernment-owned, fulfilling a priority of
Chief Executive Robert Benmosche.
U.S. officials four years ago said the rescue of a teetering
AIG was necessary because
the company was so entangled with other financial firms around the world via
complex instruments that its collapse could have unpredictable effects
including possibly bringing down many other firms.
But the fury spawned by the rapid series of bailouts,
typified in some ways by that of AIG, would eventually run wide. The government's extraordinary
intervention in the economy helped seed the tea-party movement on the right. On
the left, it helped spawn the Occupy Wall Street movement, which among other
things contended the government propped up bankers but did less for struggling
homeowners.
A
near-exit by the government from one of the most controversial bailouts is both
a significant accomplishment for the Obama administration and a sign of how far
the markets have come in four years, thanks in part to the rescue of
financial companies and the Fed's efforts to support the economy by reducing
interest rates.
But the sale could also renew complaints that Treasury still
hasn't outlined a concrete strategy for exiting other large financial-crisis
investments, such as those in mortgage investors Fannie Mae and Freddie Mac
FMCC 0.00%and lender Ally Financial Inc. The government remains in the red on
its investments in Fannie and Freddie, which have received $188 billion in
taxpayer support. The U.S. continues to hold sizable stakes in General Motors
Co. GM -0.07%and Ally that it spent $68 billion on and may not fully recover.
In addition, the AIG sale could raise questions about
timing, coming less than two months before a closely contested presidential
election.
"Anything
that happens between now and the election will seem to some to have political
motivations," said James Angel, finance professor at Georgetown
University. "But either way, the fact that AIG is in good enough shape to
buy back shares is excellent. And the deal also shows that the government is
getting out of the business of owning large stakes of companies."
A Treasury official said the timing had nothing to do with
the political season.
The
public offering of AIG shares will be Treasury's fifth sale of share since May
2011 but its largest, potentially leaving the government with less than a 20%
stake in the insurer, depending on the offering's pricing. The Treasury's stake
already has fallen to about 53% from 92%.
AIG
will repurchase up to $5 billion of its shares as part of the offering, the
Treasury said. The company has been repurchasing shares to use cash on hand and
reduce shares outstanding, a move that boosts earnings per share.
More on AIG
Heard: At AIG, Fed Waits in the Wings
MarketBeat: AIG Says Fed Could Force It to Sit on 'Excess'
Capital
Treasury Starts Preferred Stock Auctions in 4 Banks
"It's
part of our ongoing efforts to exit the investment in AIG, recover taxpayer
dollars and wind down" the crisis-era Troubled Asset Relief
Program, a Treasury official said. An AIG spokesman had no comment on the size
of the sale or the timing for its completion.
Treasury chose Citigroup Inc., C -1.69%Deutsche Bank
Securities Inc., Goldman Sachs GS -0.99%and J.P. Morgan Securities LLC to lead
the offering. Like most large stock sales, it is expected to be priced below
the recent market price. The lower the price, the more shares the government
will likely sell, further bringing down its stake. AIG shares, down 23 cents on Friday to $33.99,
have risen 47% this year. AIG shares have fallen more than 95% from their
levels in the year before the rescue.
AIG has haunted the federal government ever since its
rescue, just a day after Lehman Brothers Holdings Inc. toppled into bankruptcy.
The AIG
rescue and the Federal Reserve Bank of New York's purchases of mortgage
securities that AIG previously owned or insured saw tens of billions of
taxpayer aid flow from the insurer to banks in the U.S. and overseas.
The New York Fed's moves were criticized in some quarters as a backdoor bank
bailout that exposed U.S. taxpayers to undue risks.
In early 2009, the Obama administration misjudged the public
outrage that boiled over after reports of large bonuses that were supposed to
be paid to AIG executives, and struggled to contain the backlash.
But from the outset, Fed officials including Chairman Ben
Bernanke said the U.S. was
acting to protect the country from financial meltdown and expected to be fully
repaid on loans provided to support AIG.
As of
the last Treasury sale of AIG shares, the government had $24 billion of
AIG-related investments outstanding, according to Treasury data, while the
bailout of AIG had yielded over $18 billion in interest, fees and profits. With
the coming sale of $18 billion in securities, the government by one measure can
consider itself to have recouped the funds it extended on the bailout.
The government says it has already made a profit on the emergency funds injected
into banks at the time of the financial-industry bailout, and the Fed
has fully recouped money spent on acquiring toxic assets from troubled
companies.
The
Treasury, which invested $245 billion in more than 700 banks, has so far
collected $264.7 billion from its bank programs.
The New York Fed, meanwhile, has fully recouped $72.7
billion in loans that were used to buy toxic assets and has reaped gains of
more than $5.2 billion so far. The New York Fed last month sold the last toxic
assets it acquired in the AIG bailout.
For its part, AIG has shed its most toxic assets and
returned to profitability. But with the coming sale, AIG may have some new
headaches.
In its latest annual report, AIG indicated it expected to
become regulated by the Fed as a savings-and-loan holding company when Treasury
ceases being a majority shareholder, because AIG owns a small thrift. The
company said it might become subject to rules on leverage and risk-based
capital. Some Wall Street analysts speculated in notes to clients that the Fed
could limit AIG's use of cash to buy back shares.
"To have a regulator like the Fed come in for the first
time is certainly a step in the right direction," said Christy Romero, the
special inspector general for TARP. In a July report to Congress on bailout
programs, Ms. Romero's office warned that the U.S. financial system remains
vulnerable to another crisis and urged regulators to toughen oversight