The Office of the Comptroller of the Currency
(OCC), Board of Governors of the Federal Reserve System (FRB), Federal
Deposit Insurance Corporation (FDIC), the Office of Thrift Supervision
(OTS), and the National Credit Union Administration (NCUA) (collectively,
the agencies) in conjunction with the Conference of State Bank Supervisors
(CSBS)
1 are issuing
this guidance to provide consistent interagency expectations on sound
practices for managing funding and liquidity risk. The guidance summarizes
the principles of sound liquidity risk management that the agencies
have issued in the past
2 and,
where appropriate, harmonizes these principles with the international
statement recently issued by the Basel Committee on Banking Supervision
titled “Principles for Sound Liquidity Risk Management and Supervision.”
3 Recent events illustrate
that liquidity risk management at many financial institutions is in
need of improvement. Deficiencies include insufficient holdings of
liquid assets, funding risky or illiquid asset portfolios with potentially
volatile short-term liabilities, and a lack of meaningful cash flow
projections and liquidity contingency plans.
The
following guidance reiterates the process that institutions should
follow to appropriately identify, measure, monitor, and control their
funding and liquidity risk. In particular, the guidance re-emphasizes
the importance of cash flow projections, diversified funding sources,
stress testing, a cushion of liquid assets, and a formal well-developed
contingency funding plan (CFP) as primary tools for measuring and
managing liquidity risk. The agencies expect every depository financial
institution
4 to manage liquidity risk using processes and systems that are
commensurate with the institution’s complexity, risk profile,
and scope of operations. Liquidity risk management processes and plans
should be well documented and available for supervisory review. Failure
to maintain an adequate liquidity risk management process will be
considered an unsafe and unsound practice.
Liquidity and Liquidity Risk Liquidity is a financial institution’s
capacity to meet its cash and collateral obligations at a reasonable
cost. Maintaining an adequate level of liquidity depends on the institution’s
ability to efficiently meet both expected and unexpected cash flows
and collateral needs without adversely affecting either daily operations
or the financial condition of the institution.
Liquidity risk is the risk that an institution’s financial
condition or overall safety and soundness is adversely affected by
an inability (or perceived inability) to meet its obligations. An
institution’s obligations, and the funding sources used to meet
them, depend significantly on its business mix, balance-sheet structure,
and the cash flow profiles of its on- and off-balance-sheet obligations.
In managing their cash flows, institutions confront various situations
that can give rise to increased liquidity risk. These include funding
mismatches, market constraints on the ability to convert assets into
cash or in accessing sources of funds (i.e., market liquidity), and
contingent liquidity events. Changes in economic conditions or exposure
to credit, market, operation, legal, and reputation risks also can
affect an institution’s liquidity risk profile and should be
considered in the assessment of liquidity and asset/liability management.
Sound Practices of
Liquidity Risk Management An institution’s
liquidity management process should be sufficient to meet its daily
funding needs and cover both expected and unexpected deviations from
normal operations. Accordingly, institutions should have a comprehensive
management process for identifying, measuring, monitoring, and controlling
liquidity risk. Because of the critical importance to the viability
of the institution, liquidity risk management should be fully integrated
into the institution’s risk management processes. Critical elements
of sound liquidity risk management include:
- Effective corporate governance consisting of oversight
by the board of directors andactive involvement by management in an
institution’s control of liquidity risk.
- Appropriate strategies, policies, procedures, and
limits used to manage and mitigate liquidity risk.
- Comprehensive liquidity risk measurement and monitoring
systems (including assessments of the current and prospective cash
flows or sources and uses of funds) that are commensurate with the
complexity and business activities of the institution.
- Active management of intraday liquidity and collateral.
- An appropriately diverse mix of existing and potential
future funding sources.
- Adequate levels of highly liquid marketable securities
free of legal, regulatory, or operational impediments, that can be
used to meet liquidity needs in stressful situations.
- Comprehensive contingency funding plans (CFPs) that
sufficiently address potential adverse liquidity events and emergency
cash flow requirements.
- Internal controls and internal audit processes sufficient
to determine the adequacy of the institution’s liquidity risk
management process.
Supervisors will assess these critical elements in their reviews
of an institution’s liquidity risk management process in relation
to its size, complexity, and scope of operations.
Corporate Governance The board of directors is ultimately responsible
for the liquidity risk assumed by the institution. As a result, the
board should ensure that the institution’s liquidity risk tolerance
is established and communicated in such a manner that all levels of
management clearly understand the institution’s approach to
managing the trade-offs between liquidity risk and short-term profits.
The board of directors or its delegated committee of board members
should oversee the establishment and approval of liquidity management
strategies, policies and procedures, and review them at least annually.
In addition, the board should ensure that it:
- Understands the nature of the liquidity risks of
its institution and periodically reviews information necessary to
maintain this understanding.
- Establishes executive-level lines of authority and
responsibility for managing the institution’s liquidity risk.
- Enforces management’s duties to identify, measure,
monitor, and control liquidity risk.
- Understands and periodically reviews the institution’s
CFPs for handling potential adverse liquidity events.
- Understands the liquidity risk profiles of important
subsidiaries and affiliates as appropriate.
Senior management is responsible for ensuring
that board-approved strategies, policies, and procedures for managing
liquidity (on both a long-term and day-to-day basis) are appropriately
executed within the lines of authority and responsibility designated
for managing and controlling liquidity risk. This includes overseeing
the development and implementation of appropriate risk measurement
and reporting systems, liquid buffers (e.g., cash, unencumbered
marketable securities, and market instruments), CFPs, and an adequate
internal control infrastructure. Senior management is also responsible
for regularly reporting to the board of directors on the liquidity
risk profile of the institution.
Senior management
should determine the structure, responsibilities, and controls for
managing liquidity risk and for overseeing the liquidity positions
of the institution. These elements should be clearly documented in
liquidity risk policies and procedures. For institutions comprised
of multiple entities, such elements should be fully specified and
documented in policies for each material legal entity and subsidiary.
Senior management should be able to monitor liquidity risks for each
entity across the institution on an ongoing basis. Processes should
be in place to ensure that the group’s senior management is
actively monitoring and quickly responding to all material developments
and reporting to the boards of directors as appropriate.
Institutions should clearly identify the individuals or
committees responsible for implementing and making liquidity risk
decisions. When an institution uses an asset/liability committee (ALCO)
or other similar senior management committee, the committee should
actively monitor the institution’s liquidity profile and should
have sufficiently broad representation across major institutional
functions that can directly or indirectly influence the institution’s
liquidity risk profile (e.g., lending, investment securities,
wholesale and retail funding). Committee members should include senior
managers with authority over the units responsible for executing liquidity-related
transactions and other activities within the liquidity risk management
process. In addition, the committee should ensure that the risk measurement
system adequately identifies and quantifies risk exposure. The committee
also should ensure that the reporting process communicates accurate,
timely, and relevant information about the level and sources of risk
exposure.
Strategies,
Policies, Procedures, and Risk Tolerances Institutions should have documented strategies for managing liquidity
risk and clear policies and procedures for limiting and controlling
risk exposures that appropriately reflect the institution’s
risk tolerances. Strategies should identify primary sources of funding
for meeting daily operating cash outflows, as well as seasonal and
cyclical cash flow fluctuations. Strategies should also address alternative
responses to various adverse business scenarios.
5 Policies and procedures should provide for
the formulation of plans and courses of actions for dealing with potential
temporary, intermediate-term, and long-term liquidity disruptions.
Policies, procedures, and limits also should address liquidity separately
for individual currencies, legal entities, and business lines, when
appropriate and material,
and should allow for legal, regulatory, and
operational limits for the transferability of liquidity as well. Senior
management should coordinate the institution’s liquidity risk
management with disaster, contingency, and strategic planning efforts,
as well as with business line and risk management objectives, strategies,
and tactics.
Policies should clearly articulate
a liquidity risk tolerance that is appropriate for the business strategy
of the institution considering its complexity, business mix, liquidity
risk profile, and its role in the financial system. Policies should
also contain provisions for documenting and periodically reviewing
assumptions used in liquidity projections. Policy guidelines should
employ both quantitative targets and qualitative guidelines. For example,
these measurements, limits, and guidelines may be specified in terms
of the following measures and conditions, as applicable:
- Cash flow projections that include discrete and cumulative
cash flow mismatches or gaps over specified future time horizons under
both expected and adverse business conditions.
- Target amounts of unencumbered liquid asset reserves.
- Measures used to identify unstable liabilities and
liquid asset coverage ratios. For example, these may include ratios
of wholesale funding to total liabilities, potentially volatile retail
(e.g., high-cost or out-of-market) deposits to total deposits,
and other liability dependency measures, such as short-term borrowings
as a percent of total funding.
- Asset concentrations that could increase liquidity
risk through a limited ability to convert to cash (e.g., complex
financial instruments,6 bank-owned (corporate-owned) life insurance, and
less marketable loan portfolios).
- Funding concentrations that address diversification
of funding sources and types, such as large liability and borrowed
funds dependency, secured versus unsecured funding sources, exposures
to single providers of funds, exposures to funds providers by market
segments, and different types of brokered deposits or wholesale funding.
- Funding concentrations that address the term, re-pricing,
and market characteristics of funding sources with consideration given
to the nature of the assets they fund. This may include diversification
targets for short-, medium-, and long-term funding; instrument type
and securitization vehicles; and guidance on concentrations for currencies
and geographical markets.
- Contingent liability exposures such as unfunded loan
commitments, lines of credit supporting asset sales or securitizations,
and collateral requirements for derivatives transactions and various
types of secured lending.
- Exposures of material activities, such as securitization,
derivatives, trading, transaction processing, and international activities,
to broad systemic and adverse financial market events. This is most
applicable to institutions with complex and sophisticated liquidity
risk profiles.
- Alternative measures and conditions may be appropriate
for certain institutions.
Policies also should specify the nature and
frequency of management reporting. In normal business environments,
senior managers should receive liquidity risk reports at least monthly,
while the board of directors should receive liquidity risk reports
at least quarterly. Depending upon the complexity of the institution’s
business mix and liquidity risk profile, management reporting may
need to be more frequent. Regardless of an institution’s complexity,
it should have the ability to increase the frequency of reporting
on short notice, if the need arises. Liquidity risk reports should
impart to senior management and the board a clear understanding of
the institution’s liquidity risk exposure, compliance with risk
limits, consistency between management’s strategies and tactics,
and consistency between these strategies and the board’s expressed
risk tolerance.
Institutions should consider
liquidity costs, benefits, and risks in strategic planning and budgeting
processes. Significant business activities should be evaluated for
both liquidity risk exposure and profitability. More complex and sophisticated
institutions should incorporate liquidity costs, benefits, and risks
in the internal product pricing, performance measurement, and new
product approval process for all material business lines, products,
and activities. Incorporating the cost of liquidity into these functions
should align the risk taking incentives of individual business lines
with the liquidity risk exposure their activities create for the institution
as a whole. The quantification and attribution of liquidity risks
should be explicit and transparent at the line management level and
should include consideration of how liquidity would be affected under
stressed conditions.
Liquidity Risk Measurement, Monitoring, and Reporting The process of measuring liquidity risk should include
robust methods for comprehensively projecting cash flows arising from
assets, liabilities, and off-balance-sheet items over an appropriate
set of time horizons. For example, time buckets may be daily for very
short timeframes out to weekly, monthly, and quarterly for longer
time frames. Pro forma cash flow statements are a critical tool for
adequately managing liquidity risk. Cash flow projections can range
from simple spreadsheets to very detailed reports depending upon the
complexity and sophistication of the institution and its liquidity
risk profile under alternative scenarios. Given the critical importance
that assumptions play in constructing measures of liquidity risk and
projections of cash flows, institutions should ensure that the assumptions
used are reasonable, appropriate, and adequately documented. Institutions
should periodically review and formally approve these assumptions.
Institutions should focus particular attention on the assumptions
used in assessing the liquidity risk of complex assets, liabilities,
and off-balance-sheet positions. Assumptions applied to positions
with uncertain cash flows, including the stability of retail and brokered
deposits and secondary market issuances and borrowings, are especially
important when they are used to evaluate the availability of alternative
sources of funds under adverse contingent liquidity scenarios. Such
scenarios include, but are not limited to, deterioration in the institution’s
asset quality or capital adequacy.
Institutions
should ensure that assets are properly valued according to relevant
financial reporting and supervisory standards. An institution should
fully factor into its risk management practices the consideration
that valuations may deteriorate under market stress and take this
into account in assessing the feasibility and impact of asset sales
on its liquidity position during stress events.
Institutions should ensure that their vulnerabilities to changing
liquidity needs and liquidity capacities are appropriately assessed
within meaningful time horizons, including intraday, day-to-day, short-term
weekly and monthly horizons, medium-term horizons of up to one year,
and longer-term liquidity needs of one year or more. These assessments
should include vulnerabilities to events, activities, and strategies
that can significantly strain the capability to generate internal
cash.
Stress Testing
Institutions
should conduct stress tests regularly for a variety of institution-specific
and marketwide events across multiple time horizons. The magnitude
and frequency of stress testing should be commensurate with the complexity
of the financial institution and the level of its risk exposures.
Stress test outcomes should be used to identify and quantify sources
of potential liquidity strain and to analyze possible impacts on the
institution’s cash flows, liquidity position, profitability,
and solvency. Stress tests should also be used to ensure that current
exposures are consistent with the financial institution’s established
liquidity risk tolerance. Management’s active involvement and
support is critical to the effectiveness of the stress testing process.
Management should discuss the results of stress tests and take
remedial or mitigating actions to limit the institution’s exposures,
build up a liquidity cushion, and adjust its liquidity profile to
fit its risk tolerance. The results of stress tests should also play
a key role in shaping the institution’s contingency planning.
As such, stress testing and contingency planning are closely intertwined.
Collateral Position Management
An institution
should have the ability to calculate all of its collateral positions
in a timely manner, including the value of assets currently pledged
relative to the amount of security required and unencumbered assets
available to be pledged. An institution’s level of available
collateral should be monitored by legal entity, jurisdiction, and
currency exposure, and systems should be capable of monitoring shifts
between intraday and overnight or term collateral usage. An institution
should be aware of the operational and timing requirements associated
with accessing the collateral given its physical location (i.e., the
custodian institution or securities settlement system with which the
collateral is held). Institutions should also fully understand the
potential demand on required and available collateral arising from
various types of contractual contingencies during periods of both
marketwide and institution-specific stress.
Management Reporting
Liquidity risk reports should provide aggregate
information with sufficient supporting detail to enable management
to assess the sensitivity of the institution to changes in market
conditions, its own financial performance, and other important risk
factors. The types of reports or information and their timing will
vary according to the complexity of the institution’s operations
and risk profile. Reportable items may include but are not limited
to cash flow gaps, cash flow projections, asset and funding concentrations,
critical assumptions used in cash flow projections, key early warning
or risk indicators, funding availability, status of contingent funding
sources, or collateral usage. Institutions should also report on the
use of and availability of government support, such as lending and
guarantee programs, and implications on liquidity positions, particularly
since these programs are generally temporary or reserved as a source
for contingent funding.
Liquidity Across Currencies, Legal
Entities, and Business Lines
A depository institution
should actively monitor and control liquidity risk exposures and funding
needs within and across currencies, legal entities, and business lines.
Also, depository institutions should take into account operational
limitations to the transferability of liquidity, and should maintain
sufficient liquidity to ensure compliance during economically stressed
periods with applicable legal and regulatory restrictions on the transfer
of liquidity among regulated entities. The degree of centralization
in managing liquidity should be appropriate for the depository institution’s
business mix and liquidity risk profile.
7 The
agencies expect depository institutions to maintain adequate liquidity
both at the consolidated level and at significant legal entities.
Regardless of its organizational structure, it is
important that an institution actively monitor and control liquidity
risks at the level of individual legal entities, and the group as
a whole, incorporating processes that aggregate data across multiple
systems in order to develop a group-wide view of liquidity risk exposures.
It is also important that the institution identify constraints on
the transfer of liquidity within the group.
Assumptions
regarding the transferability of funds and collateral should be described
in liquidity risk management plans.
Intraday Liquidity Position Management Intraday liquidity monitoring is an important component
of the liquidity risk management process for institutions engaged in significant
payment, settlement, and clearing activities. An institution’s
failure to manage intraday liquidity effectively, under normal and
stressed conditions, could leave it unable to meet payment and settlement
obligations in a timely manner, adversely affecting its own liquidity
position and that of its counterparties. Among large, complex organizations,
the interdependencies that exist among payment systems and the inability
to meet certain critical payments has the potential to lead to systemic
disruptions that can prevent the smooth functioning of all payment
systems and money markets. Therefore, institutions with material payment,
settlement and clearing activities should actively manage their intraday
liquidity positions and risks to meet payment and settlement obligations
on a timely basis under both normal and stressed conditions. Senior
management should develop and adopt an intraday liquidity strategy
that allows the institution to:
- Monitor and measure expected daily gross liquidity
inflows and outflows.
- Manage and mobilize collateral when necessary to obtain
intraday credit.
- Identify and prioritize time-specific and other critical
obligations in order to meet them when expected.
- Settle other less critical obligations as soon as
possible.
- Control credit to customers when necessary.
- Ensure that liquidity planners understand the amounts
of collateral and liquidity needed to perform payment-system obligations
when assessing the organization’s overall liquidity needs.
Diversified Funding An institution should establish a funding strategy
that provides effective diversification in the sources and tenor of
funding. It should maintain an ongoing presence in its chosen funding
markets and strong relationships with funds providers to promote effective
diversification of funding sources. An institution should regularly
gauge its capacity to raise funds quickly from each source. It should
identify the main factors that affect its ability to raise funds and
monitor those factors closely to ensure that estimates of fund raising
capacity remain valid.
An institution should diversify
available funding sources in the short-, medium-, and long-term. Diversification
targets should be part of the medium- to long-term funding plans and
should be aligned with the budgeting and business planning process.
Funding plans should take into account correlations between sources
of funds and market conditions. Funding should also be diversified
across a full range of retail as well as secured and unsecured wholesale
sources of funds, consistent with the institution’s sophistication
and complexity. Management should also consider the funding implications
of any government programs or guarantees it uses. As with wholesale
funding, the potential unavailability of government programs over
the intermediate- and long-tem should be fully considered in the development
of liquidity risk management strategies, tactics, and risk tolerances.
Funding diversification should be implemented using limits addressing
counterparties, secured versus unsecured market funding, instrument
type, securitization vehicle, and geographic market. In general, funding
concentrations should be avoided. Undue over-reliance on any one source
of funding is considered an unsafe and unsound practice.
An essential component of ensuring funding diversity
is maintaining market access. Market access is critical for effective
liquidity risk management as it affects both the ability to raise
new funds and to liquidate assets. Senior management should ensure
that market access is being actively managed, monitored, and tested
by the appropriate staff. Such efforts should be consistent with the
institution’s liquidity risk profile and sources of funding.
For example, access to the capital markets is an important consideration
for most large complex institutions, whereas the availability of correspondent
lines of credit and other sources of wholesale funds are critical
for smaller, less complex institutions.
An institution
should identify alternative sources of funding that strengthen its capacity
to withstand a variety of severe institution-specific and marketwide
liquidity shocks. Depending upon the nature, severity, and duration
of the liquidity shock, potential sources of funding include, but
are not limited to, the following:
- Deposit growth.
- Lengthening maturities of liabilities.
- Issuance of debt instruments.8
- Sale of subsidiaries or lines of business.
- Asset securitization.
- Sale (either outright or through repurchase agreements)
or pledging of liquid assets.
- Drawing down committed facilities.
- Borrowing.
Cushion of Liquid
Assets Liquid assets are an important source
of both primary (operating liquidity) and secondary (contingent liquidity)
funding at many institutions. Indeed, a critical component of an institution’s
ability to effectively respond to potential liquidity stress is the
availability of a cushion of highly liquid assets without legal, regulatory,
or operational impediments (i.e., unencumbered) that can be sold or
pledged to obtain funds in a range of stress scenarios. These assets
should be held as insurance against a range of liquidity stress scenarios
including those that involve the loss or impairment of typically available
unsecured and/or secured funding sources. The size of the cushion
of such high-quality liquid assets should be supported by estimates
of liquidity needs performed under an institution’s stress testing
as well as aligned with the risk tolerance and risk profile of the
institution. Management estimates of liquidity needs during periods
of stress should incorporate both contractual and noncontractual cash
flows, including the possibility of funds being withdrawn. Such estimates
should also assume the inability to obtain unsecured and uninsured
funding as well as the loss or impairment of access to funds secured
by assets other than the safest, most liquid assets.
Management should ensure that unencumbered, highly liquid assets
are readily available and are not pledged to payment systems or clearing
houses. The quality of unencumbered liquid assets is important as
it will ensure accessibility during the time of most need. An institution
could use its holdings of high-quality securities, for example, U.S.
Treasury securities, securities issued by U.S. government-sponsored
agencies, excess reserves at the central bank or similar instruments,
and enter into repurchase agreements in response to the most severe
stress scenarios.
Contingency Funding Plan9 All financial institutions, regardless
of size and complexity, should have a formal CFP that clearly sets
out the strategies for addressing liquidity shortfalls in emergency
situations. A CFP should delineate policies to manage a range of stress
environments, establish clear lines of responsibility, and articulate
clear implementation and escalation procedures. It should be regularly
tested and updated to ensure that it is operationally sound. For certain
components of the CFP, affirmative testing (e.g., liquidation
of assets) may be impractical. In these instances, institutions should
be sure to test operational components of the CFP. For example, ensuring
that roles and responsibilities are up-to-date and appropriate; ensuring
that legal and operational documents are up-to-date and appropriate;
and ensuring that cash and collateral can be moved where and when
needed, and ensuring that contingent liquidity lines can be drawn
when needed.
Contingent liquidity events are unexpected
situations or business conditions that may increase
liquidity risk. The events may be institution-specific or arise from
external factors and may include:
- The institution’s inability to fund asset growth.
- The institution’s inability to renew or replace
maturing funding liabilities.
- Customers unexpectedly exercising options to withdraw
deposits or exercise off-balance-sheet commitments.
- Changes in market value and price volatility of various
asset types.
- Changes in economic conditions, market perception,
or dislocations in the financial markets.
- Disturbances in payment and settlement systems due
to operational or local disasters.
Insured institutions should be prepared for the
specific contingencies that will be applicable to them if they become
less than Well Capitalized pursuant to Prompt Correction Action (PCA)
provisions under the Federal Deposit Insurance Corporation Improvement
Act.
10 Contingencies may include restricted rates paid for
deposits, the need to seek approval from the FDIC/NCUA to accept brokered
deposits, and the inability to accept any brokered deposits.
11 A CFP provides
a documented framework for managing unexpected liquidity situations.
The objective of the CFP is to ensure that the institution’s
sources of liquidity are sufficient to fund normal operating requirements
under contingent events. A CFP also identifies alternative contingent
liquidity resources
12 that can be employed under adverse liquidity
circumstances. An institution’s CFP should be commensurate with
its complexity, risk profile, and scope of operations. As macroeconomic
and institution-specific conditions change, CFPs should be revised
to reflect these changes.
Contingent liquidity
events can range from high-probability/low-impact events to low-probability/high-impact
events. Institutions should incorporate planning for high-probability/low
impact liquidity risks into the day-today management of sources and
uses of funds. Institutions can generally accomplish this by assessing
possible variations around expected cash flow projections and providing
for adequate liquidity reserves and other means of raising funds in
the normal course of business. In contrast, all financial institution
CFPs will typically focus on events that, while relatively infrequent,
could significantly impact the institution’s operations. A CFP
should:
- Identify Stress Events. Stress events are those
that may have a significant impact on the institution’s liquidity
given its specific balance-sheet structure, business lines, organizational
structure, and other characteristics. Possible stress events may include
deterioration in asset quality, changes in agency credit ratings,
PCA capital categories and CAMELS13 ratings downgrades, widening of credit default spreads, operating
losses, declining financial institution equity prices, negative press
coverage, or other events that may call into question an institution’s
ability to meet its obligations.
- Assess Levels of Severity and Timing. The
CFP should delineate the various levels of stress severity that can
occur during a contingent liquidity event and identify the different
stages for each type of event. The events, stages, and severity
levels identified should include temporary disruptions, as well as
those that might be more intermediate term or longer-term. Institutions
can use the different stages or levels of severity identified to design
early-warning indicators, assess potential funding needs at various
points in a developing crisis, and specify comprehensive action plans.
The length of the scenario will be determined by the type of stress
event being modeled and should encompass the duration of the event.
- Assess Funding Sources and Needs. A critical
element of the CFP is the quantitative projection and evaluation of
expected funding needs and funding capacity during the stress event.
This entails an analysis of the potential erosion in funding at alternative
stages or severity levels of the stress event and the potential cash
flow mismatches that may occur during the various stress levels. Management
should base such analysis on realistic assessments of the behavior
of funds providers during the event and incorporate alternative contingency
funding sources. The analysis also should include all material on-
and off-balance-sheet cash flows and their related effects. The result
should be a realistic analysis of cash inflows, outflows, and funds
availability at different time intervals during the potential liquidity
stress event in order to measure the institution’s ability to
fund operations. Common tools to assess funding mismatches include:
- o Liquidity gap analysis—A cash flow report
that essentially represents a base case estimate of where funding
surpluses and shortfalls will occur over various future time frames.
- o Stress tests—A pro forma cash flow report
with the ability to estimate future funding surpluses and shortfalls
under various liquidity stress scenarios and the institution’s
ability to fund expected asset growth projections or sustain an orderly
liquidation of assets under various stress events.
- Identify Potential Funding Sources. Because
liquidity pressures may spread from one funding source to another
during a significant liquidity event, institutions should identify
alternative sources of liquidity and ensure ready access to contingent
funding sources. In some cases, these funding sources may rarely be
used in the normal course of business. Therefore, institutions should
conduct advance planning and periodic testing to ensure that contingent
funding sources are readily available when needed.
- Establish Liquidity Event Management Processes. The CFP should provide for a reliable crisis management team and
administrative structure, including realistic action plans used to
execute the various elements of the plan for given levels of stress.
Frequent communication and reporting among team members, the board
of directors, and other affected managers optimize the effectiveness
of a contingency plan during an adverse liquidity event by ensuring
that business decisions are coordinated to minimize further disruptions
to liquidity. Such events may also require the daily computation of
regular liquidity risk reports and supplemental information. The CFP
should provide for more frequent and more detailed reporting as the
stress situation intensifies.
- Establish a Monitoring Framework for Contingent
Events. Institution management should monitor for potential liquidity
stress events by using early-warning indicators and event triggers.
The institution should tailor these indicators to its specific liquidity
risk profile. The early recognition of potential events allows the
institution to position itself into progressive states of readiness
as the event evolves, while providing a framework to report or communicate
within the institution and to outside parties. Early-warning signals
may include, but are not limited to, negative publicity concerning
an asset class owned by the institution, increased potential for deterioration
in the institution’s financial condition, widening debt or credit
default swap spreads, and increased concerns over the funding of off-balance-sheet
items.
To mitigate the potential for reputation contagion,
effective communication with counterparties, credit-rating agencies,
and other stakeholders when liquidity problems arise is of vital importance.
Smaller institutions that rarely interact with the media should have
plans in place for how they will manage press inquiries that may arise
during a liquidity event. In addition, groupwide contingency funding
plans, liquidity cushions, and multiple sources of funding are mechanisms
that may mitigate reputation concerns.
In addition
to early-warning indicators, institutions that issue public debt,
use warehouse financing, securitize assets, or engage in material
over-the-counter derivative transactions typically have exposure to
event triggers embedded in the legal documentation governing these
transactions. Institutions that rely upon brokered deposits should
also incorporate PCA-related downgrade triggers into their CFPs since
a change in PCA status could have a material bearing on the availability
of this funding source. Contingent event triggers should be an integral
part of the liquidity risk monitoring system. Institutions that originate
and/or purchase loans for asset securitization programs pose heightened
liquidity risk concerns due to the unexpected funding needs associated
with an early amortization event or disruption of warehouse funding.
Institutions that securitize assets should have liquidity contingency
plans that address these risks.
Institutions that
rely upon secured funding sources also are subject to potentially
higher margin or collateral requirements that may be triggered upon
the deterioration of a specific portfolio of exposures or the overall
financial condition of the institution. The ability of a financially
stressed institution to meet calls for additional collateral should
be considered in the CFP. Potential collateral values also should
be subject to stress tests since devaluations or market uncertainty
could reduce the amount of contingent funding that can be obtained
from pledging a given asset. Additionally, triggering events should
be understood and monitored by liquidity managers.
Institutions should test various elements of the CFP to assess their
reliability under times of stress. Institutions that rarely use the
type of funds they identify as standby sources of liquidity in a stress
situation, such as the sale or securitization of loans, securities
repurchase agreements, Federal Reserve discount window borrowing,
or other sources of funds, should periodically test the operational
elements of these sources to ensure that they work as anticipated.
However, institutions should be aware that during real stress events,
prior market access testing does not guarantee that these funding
sources will remain available within the same time frames and/or on
the same terms.
Larger, more complex institutions
can benefit by employing operational simulations to test communications,
coordination, and decision making involving managers with different
responsibilities, in different geographic locations, or at different
operating subsidiaries. Simulations or tests run late in the day can
highlight specific problems such as difficulty in selling assets or
borrowing new funds at a time when business in the capital markets
may be less active.
Internal Controls An institution’s
internal controls consist of procedures, approval processes, reconciliations,
reviews, and other mechanisms designed to provide assurance that the
institution manages liquidity risk consistent with board-approved
policy. Appropriate internal controls should address relevant elements
of the risk management process, including adherence to policies and
procedures, the adequacy of risk identification, risk measurement,
reporting, and compliance with applicable rules and regulations.
Management should ensure that an independent party
regularly reviews and evaluates the various components of the institution’s
liquidity risk management process. These reviews should assess the
extent to which the institution’s liquidity risk management
complies with both supervisory guidance and industry sound practices,
taking into account the level of sophistication and complexity of
the
institution’s liquidity risk profile.
14 Smaller, less-complex institutions may achieve
independence by assigning this responsibility to the audit function
or other qualified individuals independent of the risk management
process. The independent review process should report key issues requiring
attention including instances of noncompliance to the appropriate
level of management for prompt corrective action consistent with approved
policy.
Addendum: Importance of Contingency
Funding PlansDepository institutions should maintain
actionable contingency funding plans that consider a range of possible
stress scenarios.
15 The events of the first half of 2023 have further underscored
the importance of liquidity risk management and contingency funding
planning. As seen in these events, the level and speed of deposit
outflows at a few firms was unprecedented and contributed to acute
liquidity and funding strain at those institutions. These events are
a reminder to depository institutions that depositor behavior and
broader market conditions may evolve over time, and sometimes without
warning.
Depository institutions should assess the stability
of their funding and maintain a broad range of funding sources that
can be accessed in adverse circumstances. In addition, depository
institutions should be aware of the operational steps required to
obtain funding from contingency funding sources, including potential
counterparties, contact details, and availability of collateral. As
part of operational readiness, depository institutions should regularly
test any contingency borrowing lines to ensure the institution’s
staff are well versed in how to access them and that they function
as envisioned. In particular, depository institutions should engage
in planning that recognizes the operational challenges involved in
moving and posting collateral to access critical funding in a timely
fashion. Such planning may require initial or renewed contact with
entities such as the Federal Reserve System and the Federal Home Loan
Bank System.
Depository institutions’ contingency funding
plans should recognize that during times of stress, contingency lines
may become unavailable. For example, repo lines may become unavailable
to a bank or credit union borrower either due to concerns of the repo
lender about the creditworthiness of the bank or credit union or due
to the repo lender needing to conserve liquidity more generally. Depository
institution contingency funding plans should take this dynamic into
account and include a range of contingency funding sources.
Depository institutions should review and revise contingency funding
plans periodically and more frequently as market conditions and strategic
initiatives change in order to address evolving liquidity risks. For
example, an institution that increases the share of its liabilities
comprised of less stable funding should consider whether it needs
to increase its capacity to borrow from contingency funding sources.
The agencies view having access to a range of reliable contingency
funding sources as a key component of safety and soundness.
16Contingency Funding and the Federal Reserve Discount Window
In an environment where liquidity stress manifests quickly,
the discount window is an important tool that depository institutions
can utilize in managing liquidity risk, and the agencies encourage
depository institutions to incorporate the discount window as part
of their contingency funding arrangements.
If the discount window
is a part of a depository institution’s contingency funding
plans, the depository institution should establish and maintain operational
readiness to borrow from the discount window. Operational readiness
includes establishing borrowing arrangements and ensuring collateral
is available for borrowing in an amount appropriate for a depository
institution’s potential contingency funding needs. Depository
institutions should ensure they are familiar with the pledging process
for different collateral types and be aware that pre-pledging collateral
can be useful if liquidity needs arise quickly. Depository institutions
that include the discount window as part of their contingency funding
plan should also consider conducting small value transactions at regular
intervals to ensure familiarity with discount window operations.
Information regarding the discount window is available at
FRBdiscountwindow.org.
Credit Union Contingency Funding
and the Central Liquidity Facility
Federal and state-chartered
credit unions can access the Central Liquidity Facility as a contingent
federal liquidity source. The Central Liquidity Facility exists to
provide federally sourced backup liquidity where a credit union’s
liquidity and market funding sources prove inadequate.
Section
741.12 of NCUA’s regulations outlines requirements for federally
insured credit unions to have liquidity and contingency funding plans.
The scope of these plans varies by credit union size. Credit unions
with assets greater than $250 million must, among other things, establish
and document access to at least one contingent federal liquidity source.
Credit unions subject to this requirement may demonstrate access to
a contingent federal liquidity source by maintaining membership in
the Central Liquidity Facility or establishing borrowing access at
the Federal Reserve discount window. Credit unions between $50 million
and $250 million in total assets must, among other things, include
in required policies, identification of contingent liquidity sources.
Credit unions under $50 million must maintain a basic written policy
that provides a framework for managing liquidity and includes a list
of contingent liquidity sources that can be employed under adverse
circumstances.
Information regarding the Central Liquidity Facility
is available at
NCUA.gov/support-services/central-liquidity-facility.
Issued jointly by the Board, the Office
of the Comptroller of the Currency, the Federal Deposit Insurance
Corporation, and the National Credit Union Administration in conjunction
with the Conference of State Bank Supervisors. The policy statement
is effective May 21, 2010; revised August 1, 2023 (Docket OP-1362);
SR-10-6.