WP 40
WP 40
on Banking Supervision
Working Paper 40
December 2023
The views expressed in this Working Paper are those of their authors and do not necessarily represent the
official views of the Basel Committee, its member institutions or the BIS.
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© Bank for International Settlements 2023. All rights reserved. Brief excerpts may be reproduced or
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Contents
Executive Summary........................................................................................................................................................................... 1
Introduction ......................................................................................................................................................................................... 1
Part 1: Transmission channel of climate change on regulatory and lending standards ....................................... 2
1.1 Credit risk ........................................................................................................................................................................... 2
1.1.1 Impact on lending spreads due to acute and chronic physical climate risk ......................... 3
1.1.2 Impact of the transition to a low-carbon economy on lending and bond spreads .......... 4
1.2 Market risk ......................................................................................................................................................................... 8
1.2.1 Physical risk ..................................................................................................................................................... 8
1.2.2 Transition risk ................................................................................................................................................. 9
1.3 Lending standards ........................................................................................................................................................ 11
1.3.1 Banks’ supply of credit / credit rationing to sectors affected by physical risk ................... 11
1.3.2 Banks’ supply of credit / credit rationing to energy-inefficient real estate or
industries with high emissions (brown and black sectors)......................................................... 12
1.3.3 Banks supply of credit to green industries ....................................................................................... 12
References .......................................................................................................................................................................................... 30
Olivier de Bandt (Bank of France), Laura-Chloé Kuntz (Deutsche Bundesbank), Nora Pankratz (Board of
Governors of the Federal Reserve System), Fulvio Pegoraro (Bank of France and ACPR), Haakon Solheim
(Norges Bank), Greg Sutton (Financial Stability Institute), Azusa Takeyama (Bank of Japan) and Dora Xia
(Bank for International Settlements) 1
Executive Summary
As shown by IPCC (2023), the effects of climate change are likely to accelerate over the coming years, with
a growing consensus among experts as surveyed by NGFS (2023).
The scope of the review is to describe the recent empirical literature in economics and finance
focusing on how banks are affected by climate change, with a particular emphasis on microeconomic
evidence.
Many of the studies which analyze the impacts of climate change on the economy and the
financial system rely on modeling assumptions at the macroeconomic level. In order to improve upon
these assessments, granular information is required on the effect of climate change on specific portfolios,
which will then help calibrate the models used for stress tests.
The particular focus of the paper is to understand the reason why the impact on banks as
observed so far is relatively moderate. We consider two alternative hypotheses: whether the risk is
effectively small, or negligible, or whether it is mispriced by banks or markets, which would be more a
source of concern for supervisors.
We investigate the effects of climate change on three metrics: credit risk, market risk and lending
standards. We also discuss the impact of climate change on particular portfolios, namely residential and
corporate real estate, as well as more generally the effects of climate change on non-financial corporates
as well as central and local governments (states and municipalities). We also broaden the perspective by
considering macroeconomic interactions, as well as second round effects, which are not negligible in the
analysis.
All in all, the main contribution of the paper is to provide a distribution of impact of climate
change across the papers under review, considering credit spreads, bond spreads, expected returns on
non-financial corporate equity, and real estate prices.
The main conclusions are that:
1. Apart from a few outliers, according to the overall distribution of impact across academic studies,
the microeconomic impact of climate change on particular portfolios is so far relatively small,
below 50 bp on loan and bond spreads. Stock markets appear to react more significantly and
have started pricing some, but maybe not all, the risks. There is some evidence of discount in real
estate prices for high flood risk areas. As a consequence, significant uncertainty remains
regarding the magnitude of the effects of climate change.
1
The work stream was led by Olivier de Bandt. Comments by other members of the Research Group as well as from other Basel
Committee groups are gratefully acknowledged, but remaining errors are from the authors.
Keywords: climate change, banks, bond spreads, loan spreads, equity returns
JEL: Q54, Q52, Q51, G21
While experts agree on the urgency of policy action to alleviate the effects of climate change (European
Central Bank, 2022), the economic and financial literature often indicates that, so far, climate change has
had ambiguous measurable effects on bank risk in advanced countries.
The scope of the review is the empirical literature published in top refereed journals in economics
and finance, focusing on how banks are affected by climate change and the transition to a low carbon
economy. The review includes 190 papers and covers the effects on both credit risk and credit supply;
impacts on market risk are also examined. 2 This may let aside practitioners’ results, but it allows us to be
more confident and to trust results on the basis of a clear and transparent methodology.
While the IPCC concludes that there is a quasi-linear relationship between accumulated emissions
and earth surface temperature (IPCC, 2022, 6th Report), global emissions are accelerating. Therefore,
conclusions based on past evidence is likely to underestimate the amount of climate change-related
damages, including the effects on banks’ portfolios. In addition, there is evidence that some markets might
ignore climate related information. There may be good reasons for limited reactions of participants in
financial markets in some instances, for example when exposures have a short maturity (Acharya et al.
2023). Nevertheless, Eren et al. (2022) note that concerns are growing that current financial asset prices
do not sufficiently reflect climate risks. There is thus a risk that future price corrections can be more
pronounced in such areas, creating a risk to financial stability. That said, there are no clear benchmarks
that quantify climate risks and fair pricing of such risks. Therefore, it is not feasible to gauge whether
current asset prices underestimate or overestimate climate risks and the scope for repricing. It should also
be noted that most of the empirical literature is concentrated on advanced economies – Europe, United
States, Japan, and Australia. Only a few studies look at effects in emerging markets, despite these countries
being potentially more vulnerable to both physical climate risk and the costs of transition.
Before going into detail on the evidence provided by the literature, it is useful to offer a general
perspective of the issues at hand. The ultimate impact of climate-related risks, both physical and transition
risks, on banks’ credit exposures is not easy to quantify. This is true for a number of reasons. One is that
conventional risk models do not capture potentially severe facets of climate-related risks, such as tipping
points and outcomes such as climate-induced mass migrations and associated warfare. This omission is
understandable, as these effects are extremely difficult to model; yet their omission is likely to lead to an
underestimation of the impact of climate change on banking systems and economies more broadly (e.g.,
Stern (2013)). A second reason is the indirect nature of climate-related risks for banks, such as impacts to
their customers’ supply chains arising from climate physical risks, and the unpredictability of transition
risks associated with political measures to mitigate climate change. Third, and perhaps the main reason
why it is difficult to quantify the impact of climate change, is the related uncertainty. For example, as noted
by Lenton et al. (2019), there is a lot of uncertainty about how much ice sheets will melt, given any assumed
amount of global temperature rise. And, as noted by Pindyck (2020), considerable uncertainty remains
about how much average temperatures will rise given any assumed path for greenhouse-gas emissions.
For example, the extent of coastal flooding from future sea level rise (SLR) is likely to be substantial but
highly uncertain, making it extremely difficult to estimate damages to coastal real estate from future SLR.
All in all, the long-term forecasting horizons and data gaps only make the task of estimating the impact
of climate-related risks more difficult.
2
The analysis is based on papers published since 2010 in refereed economics and finance journals, as well as a few energy and
environment journals. In order not to miss more recent contributions, we also consider working papers by the NBER, the BIS,
the Board of Governors of the Federal Reserve System, the Federal Reserve Bank of New York, the European Central Bank, the
Deutsche Bundesbank, the Banque de France, and CEPR Discussion Papers.
This part focuses on general issues related to the effects of climate change on credit risk and market risk,
as well as lending standards (in particular lending volumes). Credit risk includes risk of default on loan and
bond exposures, while our review of market risk mainly concentrates on equities and other non-bond
exposures traded in securities markets (see also European Systemic Risk Board, 2021 and 2022).
Credit risk is an important dimension of banks’ portfolio management. It is managed by banks through an
assessment of the probability of default (PD) and may translate into lending spreads, or more generally
bond spreads. As argued by Acharya et al. (2023), a key aspect of the risk sensitiveness of banks’ banking
books is the maturity of bank loans. To the extent that banks can reshuffle loan portfolios before climate
change-related risks materialize, they will not be much affected by climate shocks. 4 There are nevertheless
two caveats. First, banks do hold assets displaying long-term maturities, especially for real estate. This
3
See BCBS (2021a) and BCBS (2021b).
4
This may distinguish banks from insurance companies (see box below).
1.1.1 Impact on lending spreads due to acute and chronic physical climate risk
1.1.1.2 Floods
Physical risks not only destroy property and harvests, but also impact the probability of repayment of retail
loans as Kousky et al. (2020b) show. After a flood event, the probability of default (of a non-insured
moderately priced property) increases by 2.6 times after two years.
Correa et al. (2023) find that, following climate change-related disasters, banks charge higher
spreads on loans to indirectly affected borrowers with recently high exposure to these types of disasters.
This effect varies from 19 basis points for hurricanes to about 8 basis points for wildfires and floods. These
changes in loan spreads are economically sizable, as they represent between 5% and 10% of the
unconditional spread charged on loans included in the sample.
Garbarino and Guin (2021) study how lenders react after a flood event using UK data for the mid-
2010s. In contrast to other studies, they find that “banks do not mark-to-market against local price declines
and lenders do not offset the valuation bias by adjusting interest rates or loan amounts”. The absence of
effects of floods in their analysis may be explained by public flood subsidizing high income households,
and high-income households self-select into high flood areas. Indeed, there is a general concentration of
wealthy borrowers along rivers and seashores that are most affected by climate change-related risks.
The figures report the impact arising from a unit climate risk shock, i.e. , where y is the credit or lending spread, measured in
5 Δ𝑦𝑦
Δ𝑥𝑥
basis points, and ∆x is a unit climate shock. The latter depends however on the nature of the risk, with a cross-sectional
dimension for transition risk (e. g. difference in carbon emissions) and a time series dimension for physical risk (e. g. probability
of flood occurrence or heat wave).
1.1.2 Impact of the transition to a low-carbon economy on lending and bond spreads
a) Bank loans
For higher risks and spreads on bank loans facing transition risk, there is evidence on both the corporate
loan and mortgage markets. Some studies only consider default risk. Others offer a more complete analysis
and also measure the implications of loan spread adjustment to higher risk.
10
9
8
7
6
5
4
3
2
1
0
0-25 25-50 50-75 75-100 >100
Physical Transition
Source: authors’ calculations, based on the review of 12 estimates provided by the academic literature, number of studies (vertical axis)
providing an estimate of yield spreads of bank loans, in basis points (horizontal axis). Impact is usually measured as the response to a one
standard deviation on climate change exposure. The articles displayed here are: Beyene et al. (2022); Chava (2014); Correa et al (2023); Degryse
et al (2023); Delis et al. (2021); Do et al. (2021); Ehlers et al. (2022); Garbarino and Guin (2021); Huang et al (2021); Javadi and Masum (2021);
Kleimeier and Viehs (2018); Nguyen et al. (2022). The studies investigating shocks in terms of physical risk are depicted in blue, transition risk
in red. The reference above 100 bp is Huang et al. (2021).
10
9
8
7
6
5
4
3
2
1
0
0-25 25-50 50-75 75-100 >100
Physical Transition
Source: authors’ calculations, based on the review of 15 estimates provided in the academic literature, number of studies (vertical axis)
providing an estimate of yield spreads on corporate or sovereign bonds, in basis points (horizontal axis). Acharya et al (2022) -2 entries; Auh
et al. (2022); Baker et al (2018); Cevik and Tovar Jalles (2020); Goldsmith-Pinkham et al. (2021); Höck et al. (2020); Kim and Pouget (2023) -2
entries; Painter (2020) -2 entries; Pastor (2022); Seltzer et al (2022); Xia and Zulaica (2022); Zerbib (2019). The studies investigating shocks in
terms of physical risk are depicted in blue, transition risk in red. The reference above 100 bp is Höck et al. (2020).
b) Bond spreads
Several studies explore a carbon premium – the extra yield investors demand to buy bonds issued by firms
with more greenhouse gas emissions – in the U.S. corporate bond market. Seltzer, Starks, and Zhu (2022)
find that high emitters have lower credit ratings and higher yield spreads, particularly in states with stricter
regulatory enforcement. Further, they find that the composition of bondholders changed after the Paris
Agreement. Xia and Zulaica (2022) study two potential mechanisms behind the carbon premium in
corporate bonds and find evidence consistent with both: One is the preference channel, under which the
premium reflects investors' preference for firms that they perceive as being more environmentally
responsible. The other channel is the risk channel, where investors perceive more carbon-intensive firms
as more prone to default. Further, the authors find that the premium is larger for firms in more energy-
intensive sectors. Kim and Pouget (2023) study the relation of carbon emissions and yield spreads both in
the primary and secondary corporate bond market. They find that firms with higher emissions have larger
yields than firms with low emissions on the primary market, implying a higher cost of capital of 4 bp.
Box 1
A growing literature investigates the impact of environmental, social and governance (ESG) performance and
objectives on credit risk. As discussed by Bolton and Kacperczyk (2022), the increasing importance of such factors
“may reflect the growing frustration with inadequate policies”. We first discuss the research on the effect of ESG
performance on borrowers. Subsequently, we summarize the literature on lenders' ESG scores and outcomes related
to credit risk.
For borrowers, Höck et al. (2020) show that environmental sustainability reduces the credit risk premium
measured in CDS spreads but only for companies with a good creditworthiness. Billio et al. (2022), as well as Carbone
et al. (2022), find that sustainability also affects borrower ratings positively and leads to a decline in the credit spread
for those corporates. In addition, some papers explicitly connect emissions, ESG ratings, and credit spreads. They
document that both high emissions and low ESG ratings are connected to a higher probability of default and higher
credit spreads (Kleimeier and Viehs (2018), Capasso et al. (2020), Ehlers et al. (2022)). Chava (2014) shows that lenders
charge a significantly higher interest rate on the bank loans issued to firms with these environmental concerns Further,
the paper documents that banks are also more reluctant to lend to these firms, as witnessed by the lower number of
banks participating in their loan syndicate than for the firms without such environmental concerns. In line with this
evidence, recent papers document a rise of sustainability-linked lending, in which lenders reward sustainable
borrowers with lower lending rates (Kim et al., 2022, Carrizosa and Gosh, 2022).
From the perspective of lenders, Birindelli et al. (2022) show that banks’ commitment to climate issues –
meaning a medium to high attention to this topic – is connected to a lower risk of bank loans. Besides the management
of financial and event risk, the studies allude to lowered reputational risk as a driver of banks’ attention to non-financial
characteristics of their borrowers.
In addition to credit risk, banks could be exposed to climate change through market risk from shocks
associated with sudden changes in stock prices, interest rates, exchange rates, and commodity prices. In
this section, we focus on equity markets, as bond markets are discussed in section 1.1. As Giglio et al.
(2021a) stress, research on market risk is complicated by the fact that investors may have recently started
to pay more attention to climate change-related risks.
As for credit risk, physical and transition risks have different implications for market risk and are
discussed separately. Figure 3 summarizes the estimates in the empirical literature. The same caveats as
for Figures 2 and 3 apply. Also note that the risk premium is not comparable to lending and bond spreads,
as indicators for market risk measure the expected return differential from a brown versus a green
portfolio.
0
<0 or 0 0-100 100-200 200-300 300-400 400-500 500-600 600-700 700-800
Physical Transition
Source: authors’ calculations, based on the review of 15 papers in the academic literature, number of studies (vertical axis) providing an
estimate of risk premium on non-green, or carbon-intensive, or non-ESG stocks, in basis points (horizontal axis). Acharya et al. (2022); Addoum
et al (2023); Bua et al (2022) -2 entries; Bolton et Kacperczyk (2021 a and b) – 6 entries; Choi et al. (2020); Hong et al. (2019); Hsu et al (2023);
Giglio et al. (2023); Monasterolo and De Angelis (2020). The studies investigating shocks in terms of physical risk are depicted in blue, transition
risk in red. Note that the risk premium is not comparable to lending and bond spread.
There are two additional strands of the literature that need to be mentioned: the impact of
disclosures and ESG investments in financial market.
First, the disclosure of exposures also has an impact on the equity risk premium. As discussed by
Bolton and Kacperczyk (2022), disclosures reduce uncertainty, leading to a lower premium. Krueger (2015)
studies the effect of mandatory GHG emissions disclosure passed into law in 2013 in the United Kingdom.
His research shows that firms most heavily affected by the regulation experience a significant increase in
Tobin’s Q, as compared to a matched sample of European firms, providing evidence of positive valuation
gains. He further finds that investors value carbon transparency more in carbon intensive sectors: basic
materials (mining) as well as oil and gas production. In an international context, Krueger, Sautner, Tang,
and Zhong (2023) find that ESG disclosure mandates positively affect firm-level stock liquidity. The effects
are stronger for binding mandates compared to comply-or-explain policies and increase under stringent
enforcement. Using survey methods, Ilhan, Krueger, Sautner, and Starks (2023) show that investors value
and demand climate risk disclosures. Further, the authors use the introduction of a law on the energy
transition in France (Article 173) to show that climate-conscious institutional ownership drives better firm-
level climate risk disclosure.
Bolton and Kacperczyk (2021c) report the asymmetric reaction of investors in transition risk
pricing in a response to companies’ new disclosure of GHG emissions. This indicates that firms’ disclosure
of their GHG emissions and exposure to climate change-related risks is helpful to reduce investors’
After lending prices, it is important to study lending volumes. Banks are in a position to adjust credit supply
to changes in risks and expected rewards. Climate change-related factors could affect how banks perceive
these risks and rewards. 6 Banks can in principle play a role in making investments in high polluting or
other exposed sectors more expensive and can provide more (and/or cheaper) credit to potential green
sectors. However, papers differ in terms of ability to effectively identify exposures to climate change-
related risks at a granular level. Syndicated loans offer detailed information on the financing of large
corporations, especially for large energy producing projects such as power plants. Loan registers provide
detailed bank loan level data to assess transition risk for a broader set of exposures (Schubert, 2023),
including SMEs. For assessing physical risk, where information is required at the granular plant level, bank
level data are also used by some authors, but at the cost of a few identifying assumptions (Blickle et al.,
2022). To address these issues, Pagliari (2023) focuses on so called territorial banks, which are more likely
to lend to local firms. Territorial banks are considered less significant institutions, 7 but may be more
concentrated and located in areas that are more prone to flooding and more susceptible to suffer from
climate change-related shocks.
1.3.1 Banks’ supply of credit / credit rationing to sectors affected by physical risk
In the area of physical risk, some papers concentrate on the effects of floods and natural disasters. No
paper investigates the impact of drought and heat stress.
Meisenzahl (2023) uses supervisory data for the largest U.S. banks and finds that after 2015 banks
significantly reduced lending to areas more impacted by floods and wildfires. A one standard deviation
increase in climate risk reduces county-level balances in banks' portfolios by up to 4.7 percent in counties
with large loan balances. However, the reductions are concentrated among borrowers and products with
high credit risk, and low-risk borrowers received more funding even in heavily affected areas.
6
Demand effects by corporates are discussed in section 2.2.
7
Banks that are under indirect ECB supervision (i.e. supervised by national supervision authorities), which are smaller than the
ones under direct ECB supervision.
1.3.2 Banks’ supply of credit / credit rationing to energy-inefficient real estate or industries
with high emissions (brown and black sectors)
Reghezza et al. (2022) find that, following the Paris Agreement, European banks reduced credit to polluting
firms; the same is observed after the withdrawal of the United States from the Paris Agreement; lending
by European banks to U.S. firms decreased. For U.S. banks, Jung, Santos and Seltzer (2023) document a
downward trend in exposures to the riskiest industries, at least partially explained by a reduction in banks’
funding to these industries. Using the estimated sectoral effects of climate transition policies from the
general equilibrium models of Jorgenson et al. (2018), Chen, Goulder and Hafstead (2018), and NGFS
(2022), the authors find that bank exposures appear overall manageable. The largest projected exposures
of the average bank reach 9 percent under the NGFS disorderly transition scenario.
Takahashi and Shino (2023) argue that the levels of scope 1 and 3 emissions have a negative
impact on lending for Japanese banks, but this was already visible before the Paris Agreement. They also
show that banks with greater leverage and a lower return on assets are more likely to decrease loans to
firms with high GHG emissions.
Box 2
A healthy insurance industry could play an important role in mitigating the impact of climate events on financial
systems and economies globally; however, the natural response of insurers to growing physical risks from climate
change is to reprice insurance coverage or reduce its availability, leading to larger insurance protection gaps. Financial
sector supervisors are aware of this and have taken actions in at least two ways. One way is to help ensure that
insurance companies manage climate risks well, to protect policy holders and support financial stability (see, for
example, Cleary et al. (2019)). A second way is that insurance companies are sometimes included in the climate stress
tests financial sector supervisors run to assess the impact of climate change-related risks on financial systems (see
Box 3 on climate stress tests). One potentially important channel operating via insurance would be the increased risk
of mortgages held by banks if residential and commercial properties, which serve as collateral, become less insurable
against natural hazards. A second potentially important channel is the reduced availability of business continuity
insurance. Growing insurance protection gaps in these two areas could threaten financial stability.
Climate physical risks can of course have a direct impact on economies and financial systems, and ECB (2023) argues
that catastrophe insurance is a key tool to mitigate macroeconomic losses following extreme climate-related events,
as it provides prompt funding for reconstruction and should incentivize risk reduction and adaptation. Rousová et al.
(2023) suggest that if a large disaster of 1% of GDP hits a country, GDP growth declines by 0.24 percentage points in
the quarter of impact. However, if 25% of the losses are insured, the GDP growth rate is estimated to only decline by
around 0.15 percentage points. For unusually high shares of insured losses – e.g., a 75% insured share corresponding
to the 90th percentile of the distribution – the empirical model even suggests an almost immediate (within quarter)
rebound in GDP growth.
Insurance only exists if the risks to be insured can be priced correctly and transferred to reinsurance companies and
to the capital market. Charpentier (2007) argues that “[i]t is extremely difficult to insure in a changing environment”.
In his view, climate risk – and more specifically natural disasters – is a challenging issue for the insurance industry,
since it involves the possibility of extremely large losses. He concludes that involving reinsurance markets and
insurance linked securities seems one solution to avoid insolvency problems. But climate is changing fast, and if this
uncertainty cannot be reduced, it might lead to challenges in the availability, pricing and affordability of insurance.
Some markets already see sharp increases in the price of home ownership insurance due to potential climate
related hazards. Keys (2023) reports that while the average price of home insurance in the United States is $1,900, the
price in New Orleans is $4,000 and the price in Miami $5,000 per year. If a price cannot be set, insurance coverage
may be incomplete, possibly triggering non-linearities when the natural disasters go beyond initial basic coverage and
governments do not step in. ECB (2023) documents a large insurance protection gap, especially in southern and
Eastern Europe. Only about a quarter of climate-related catastrophe losses are currently insured in the European
Union.
Oh et al. (2022) provide evidence that price regulation might cause a decoupling of insurance rates from
the underlying risks. In the U.S. states where price regulations appear most restrictive, rates are least reflective of risks.
In these high friction states, insurers are restricted in their ability to change rates in response to losses. As a result,
rates have not adequately adjusted in response to growth in losses. To overcome these frictions, insurers cross-
subsidize high friction states by raising rates in low friction states.
If climate change triggers an increase in the frequency of natural disasters, this can have significant impacts
on insurance, potentially increasing the risk of insurance companies not being able to cover their liabilities. Gray (2021)
argues that extreme weather has begun to diverge from historical records. Firms using models based on historical
data have struggled to integrate new information about climate change and climate variability into their forecasts.
Insurance-linked bonds are paid if an event occurs. Polacek (2018) discusses CAT bonds. Catastrophe (CAT) bonds
have been provided since 1997. Unlike traditional insurance, CAT bonds are 100% collateralized. CAT bonds are also
structured to eliminate counterparty risk. CAT bonds have an appeal to investors as their returns are largely
uncorrelated with the returns of other financial market instruments. In the past, CAT bonds have provided strong
returns. This has helped attract alternative sources of capital into insurance markets.
Insurance-linked bonds can also be used as protection against negative weather events. Such bonds will
normally be index-based. A literature study by Kraehnert et al. (2021) finds that the CAT bond market has become a
vital pillar of the risk management of insurers. Weather derivatives, on the other hand, still seem to be a niche product
outside the United States. One challenge with insurance-linked securities is that there are economies of scale and
therefore easier for larger companies to use these tools than for smaller ones. With risk-based premiums one needs
to monitor the potential unaffordability of insurance. This will especially be the case if the less affluent tend to locate
in high-risk areas.
Index-based insurance might be a solution for the agricultural sector, but so far uptake is low
Index-based insurance has been used to protect farmers against negative outcomes. With index-based insurance pay-
outs depend on an index that strongly correlates with losses in income or assets. Kraehnert et al. (2021) argue that
index insurance especially can welfare-enhancing effects in developing countries. However, uptake rates so far remain
low despite the use of subsidies through vouchers or premium reductions. One reason for the low uptake might be
low levels of trust in the insurance provider. Individuals might also have difficulties assessing the probability that a
natural disaster will strike and therefore have problems understanding when the index-based insurance will be
triggered.
Citino et al. (2021), looking at agricultural insurance in Italy, also document a low uptake of insurance. They
find that adverse selection and choice frictions render price mechanisms like subsidies less effective. Instead, one
should consider mandates to assure a greater insurance coverage.
Kraehnert et al. (2021) find that in markets with voluntary flood insurance uptake is low, typically below 50%. Low-
probability, high-impact events are often underestimated by economic agents. Large-scale information campaigns on
flood risks and insurance possibilities have been ineffective so far. Another issue is moral hazard, as individuals might
expect government relief in response to a large amount of uninsured losses. This might help explain the finding of
Kousky et al. (2020a) that most households are uninsured or underinsured against floods, despite flooding being the
most frequent and costliest natural disaster in the United States. Of course, any expectation on the part of households
that government agencies will provide sufficient post-flood assistance could be, in the event, incorrect.
In the Netherlands flood insurance is not even available, as the government is responsible for providing
flood relief. Botzen and Van den Bergh (2008) examine existing risk-sharing arrangements and the possible role of
private insurance in some detail. They argue that private insurance has a role in spreading risk and raising incentives
to reduce economic losses.
Public-private initiatives can be used to increase insurance coverage against natural disasters. European Central Bank
(2023) suggests that public-private partnerships (PPPs) and ex ante public backstops can be suitable safeguards and
give incentives to promote risk mitigation. This might be necessary to ensure broad insurance coverage. Gray (2021)
points out that how to incorporate knowledge about climate impacts into routine economic processes, such as
insurance pricing, can trigger broader political disputes about how these risks should be socially distributed.
We now consider the issue of the impact of climate change on real estate prices. Property is the most
important source of collateral in the banking system. Buildings are also a major source for energy use, and
they are highly vulnerable to many of the consequences of climate change – like increased risk of flooding,
rising sea levels and more frequent extreme weather events. Property exposed to climate risk can be a
major contributor to volatility in the financial system. At the same time, many of the risks are to some
extent foreseeable, and with proper risk assessment banks can reduce exposure to climate risk significantly.
The transmission to banks obviously depends on the nature of the loan contract (whether it is a
recourse or a non-recourse loan), which depends on the jurisdiction, but to our knowledge this dimension
has so far not been fully investigated. It also depends on the existence of insurance guarantees (see Box 2).
A large literature has evolved on how climate related effects might affect property. The literature
looks at possible price effects, with implications for collateral values. It also looks at how credit quality is
related to exposure to different climate related issues. We will first discuss the substantial literature on
physical risk and then look at the smaller literature on transition risk, especially related to energy efficiency.
0
0 % to 3 % 4 % to 5 % 5 % to 10 % 10 % to 13 %
Source: authors’ calculations, based on the review of 9 papers in the academic literature, number of studies (vertical axis) providing an estimate
of the impact of exposure to flood risk for property valuation. Studies finding an observed price discount in blue, studies indicating an
estimated overvaluation due to lack of valuation of flood risk in red. Studies included: Bakkensen and Barrage (2021), Baldauf et al. (2020),
Beltrán et al. (2018), Bernstein et al. (2019), Fuerst and Warren-Myers (2021), Garbarino and Guin (2021), Giglio et al. (2021a), Hino and Burke
(2020), Keys and Mulder (2020), Mirone and Poeschel (2021), Murfin and Spiegel (2020), Reeken and Phlippen (2022).
Giglio et al. (2021a) look at the housing market to determine appropriate discount rates for
valuing investments in climate change abatements. The paper seeks to identify a term structure of discount
rates for real estate over a horizon of hundreds of years – the horizon most relevant for investments in
climate change abatements. Looking at data from the U.S. East Coast, they identify climate risk by linking
geo-code addresses to identify properties that will be flooded with a six feet increase in sea levels. They
find that if real estate is affected by climate risk the real estates’ term structure of discount rates is
downward sloping and reaches 2.6% for payoffs beyond 100 years.
Clayton et al. (2021) find that good governance and public investments might abate negative
price effects and help explain the modest and short-term nature of price reductions. On the other side,
lack of governance or proactive investment may be harming prices. There is some evidence that investors
put higher risk premiums on properties in areas exposed to negative climate events. This is regardless of
whether their individual properties have been directly affected. This might even extend to areas with similar
climate risk profiles, where events have yet to occur. On the other hand, there is so far little evidence that
owners’ investment in resilience improves financial performance or insurance pricing on the asset level.
8
See Eurostat: Energy consumption in households - Statistics Explained (europa.eu).
Businesses face increasing regulatory and economic pressure to address their operational exposure to
physical and transition risk. This demand and their responses could affect their financial health and quality
as borrowers, their demand for credit, and their behavior as depositors. Therefore, the magnitude of
potential repercussions of physical hazards and regulatory shocks for borrowing firms is important to
understand from the perspective of banks and financial institutions.
Understanding the extent to which climate risk is priced into government bonds (including those issued
by central governments and local governments) is important to assess banks’ exposure to climate risk. This
is because government bonds often account for a non-negligible share in banks’ holdings of securities.
To assess the impact of climate related shocks on banks, it is also important to consider the overall effects
on individual banks, the aggregate effect on the whole banking system, with possible spillovers across
banks, as well as the macroeconomic environment, together with feedback effects (see also European
Systemic Risk Board, 2021 and 2022).
9
That said, a low-carbon transition can also have some positive impacts on fiscal space. For example, the transition could
generate significant public savings from phasing out fossil fuel subsidies. For another example, governments could generate
substantial revenue from carbon taxes.
10
In the long run, gradual global warming and transition policies have important implications for growth potential by causing
fundamental and enduring structural changes to the economy.
Beyond the effect of climate change on individual portfolios and specific risk, it is important to get a
comprehensive view of the overall effect of these different channels on the situation of banks and notably
on their profitability. From that perspective, Pagliari (2023) focuses on flood risks and exploits the
peculiarities of business models for small European banks to proxy for the location of the banks’
counterparties. She finds that “ROA has been on average lower at banks located in areas that have been
historically subjected to severe flooding events”. This is partially due to what she identifies as the “core
lending channel of transmission”, whereby flood risks can hinder banks’ profitability via the decrease in
lending to households and non-financial companies. Similarly, Schubert (2023) finds that, in the cross-
section of stock returns, small banks with high exposure to flood risk underperform other banks, on
average, by up to 8.7% per year. Blickle et al. (2022), on the other hand, find that FEMA disasters over the
last twenty-five years had insignificant or small effects on U.S. banks’ performance. They highlight that
disasters increase loan demand, which offsets losses and boosts profits over the medium run at larger
(multi-county) banks. This is consistent with Cortés and Strahan (2017) who show that banks reallocate
credit from less exposed to more exposed areas.
3.2 Effects on the overall banking system, in particular through the lens of stress
tests
The second dimension is the effect of climate change on the banking system as a whole, as opposed to
individual banks, and how it interacts with macroeconomic developments.
Bottom-up stress tests provide information on the aggregate effects of climate change-related
shocks. There is also limited evidence for non-linearities at the aggregate level. However, research is active
to assess second-round effects.
11
In their analysis, diversification within the financial sector is less likely to reduce systemic risk.
Box 3
Financial sector supervisors are aware that there is the possibility that financial institutions will underestimate risks
from climate change and that this poses a threat to financial stability. To date, the main response of financial sector
supervisors has been the development of stress tests for climate change for macroprudential and microprudential
purposes (see, e. g. Vermeulen et al, 2021, for a top-down transition stress test for the Netherlands). These exercises
are different from traditional stress tests in a number of ways. Baudino and Svoronos (2021) discuss the main features
of several early stress tests for climate change, which are also shared by more recent climate stress tests. It is
recognized that climate stress tests are in a very early stage of development. Nevertheless, novel approaches to assess
climate risk in stress tests are developed continuously. In particular, Jung, Engle and Berner (2023) compute banks’
expected shortfall or CRISK, similar to Brownlees and Engle’s (2017) SRISK. Such a market-based approach allows one
to analyze large global banks’ vulnerability, measuring the impact of disorderly stress scenarios, including a stranded
asset factor (*). There is thus considerable uncertainty about the outcomes of these exercises, in part because of their
early stage of development but also because of the inherent uncertainty of climate change risks and the long time
horizons of the exercises. Because of this greater uncertainty, it is fairly common for climate stress tests to involve the
running of more scenarios than traditional stress tests (see, for instance, Allen et al. (2020) and Emambakhsh et al.
(2023)). The results for individual financial institutions also tend not to be disclosed, given that the exercises are in an
early stage of development. Another key difference is that, to date, the quantitat3ive output of stress tests for climate
change have not been used to determine capital requirements for climate risks, although qualitative results may
sometimes have an impact on (bank-specific) Pillar 2 requirements (P2R in the European Single Supervisory
Mechanism).
It is recognized that climate stress tests have general limitations, even if they are nevertheless viewed as
useful risk management exercises. Indeed, there are general limitations to any quantification due to the lack of
appropriate data. As mentioned in the main text, this creates the potential to underestimate the risks that climate
change poses to financial institutions. This is true for a number of reasons. Firstly, climate physical and transition risks
are mostly absent from past data, while most risk management techniques rely heavily on risk realizations in past data
to measure future risks. Secondly, granular data is needed to properly assess risks from climate change, and financial
institutions often do not have this data. Thirdly, it is also generally agreed that in times of economic stress correlations
diverge from regular, non-stressed periods, although as observed by Forbes and Rigobon (1999) as well as Loretan
and English (2000) care must be taken when measuring correlations during times of high volatility because there is a
mechanical effect of rising volatility on measured correlations. Consequently, for climate-related risks with only scarce
historic observations, measuring stressed correlations is almost impossible, which makes climate stress testing even
more challenging.
Another general limitation is the high level of uncertainty surrounding the results arising from the fact that
climate change-related risks play out over a time horizon much longer than for other, more common risks. These
stress tests usually assume a static balance sheet; thus second-round effects are ignored. Second-round effects can
amplify the stress of a climate scenario to individual banks and the banking system as a whole through, for example,
effects within the interbank credit market, spillover effects to other financial institutions (e.g., insurance companies,
see Box 2) and direct impacts on the real economy (e.g., credit supply reduction). The role of insurance companies is
crucial because increased realizations of physical risks could lead to less insurance coverage and larger insurance
protection gaps, leading to larger credit risks for banks if the collateral backing mortgages becomes uninsurable
against natural hazards (see also Box 2). Given the long time horizon of climate stress tests, it is agreed that the static
balance sheet assumption is problematic. It should arguable be relaxed, so that second-round effects can be
incorporated into the analysis. Alogoskoufis et al. (2021) also show for the European economy that second-round
effects amplify the impact of the stress, and it is crucial to analyze the effects of a climate risk scenario. The same
reasoning applies to Acharya et al. (2023) who, in addition to noting the importance of second-round effects and
feedback loops, argue that it is essential to account for “compound risk” scenarios which allows one to analyze the
(*) This factor is developed by Litterman and the WWF and is constructed as an equity-based hedge portfolio that is long in global fossil
energy index and short in S&P 500.
The survey acknowledges the great number of new research papers that have very recently been made
available to understand better the various transmission channels by which climate change impacts banks.
The richness of these studies helps provide a first assessment of the distribution of risk spreads for loans,
bonds and equity, indicating that banks have started pricing these risk, while the issue remains of whether
it is adequate. Based on this material, a few provisional conclusions may be drawn, which provide directions
for future research, with a particular view to assess the robustness of these findings.
1. Apart from a few outliers, according to the overall distribution of impacts across academic studies,
the microeconomic impacts of climate change on particular portfolios are relatively small, below
50 bp on loan and bond spreads. Stock markets appear to react more significantly and appear to
have started pricing some, but maybe not all, of the risks. As a consequence, significant
uncertainty remains regarding the magnitude of the effects of climate change.
2. There are various possible explanations for why banks may be able to manage risks from climate
change at the macro level, although the situation might change over time, as climate change
accelerates. Acharya et al. (2023) argue that the pricing of climate change-related credit or market
risks only partly offsets the impacts of the realization of climate change-related shocks. Indeed,
several authors conclude that realized returns on climate change-related risks are below expected
return, providing evidence of an underestimation of risk.
3. New dimensions are uncovered, like the impact of ESG criteria as well as the reporting on
exposures, which also help to partly reduce uncertainty.
4. Liquidity issues arising from climate change-related shocks are still insufficiently researched.
5. The overall impact of climate change, which becomes multifaceted and affects various portfolios
at the same time and in a correlated fashion, may therefore be more significant. In particular, the
difficulty to model possible non-linear effects related to climate change and to capture tipping
points might lead to an underestimation of risks.
6. There are still data issues, notably in terms of granularity, as well as methodological issues, which
prevent a definite assessment of the situation, both for physical risks (lack of exact location of
the exposures in many instances) and transition risks (notably lack of evaluation for SMEs).
All in all, one may conclude that the overall balance is more in the direction of an underestimation
of the risks from climate change from the perspective of banks, rather than a situation where risks are
likely to be fully manageable by banks. The main channel is the materialization of unexpected risks
insufficiently priced in lending or bond spreads.
Note that the review did not consider the policy implications in terms of optimal prudential
regulation. Although we investigated to what extent the channels may interact with regulation, the review
did not investigate how regulation could mitigate these effects from a financial stability point of view.
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