Professional Documents
Culture Documents
NOTE NUMBER 11
mercial banks, by contrast, aggregate balance makers need to be cognizant of the inherent limi- into account off-balance sheet exposures, and can help Breuer, P. 2000. “Measuring Off-Balance Sheet Lever-
sheet leverage did not increase over this period, tations and weaknesses of the leverage ratio. contain the build-up of leverage in the banking system.” age.” IMF Working Paper 00/202, International
and in some instances it even fell. The proposals at an international level to Similarly, the Financial Stability Board report on procy- Monetary Fund, Washington, DC.
As can be deduced, the balance sheet lever- supplement risk-based measures with an inter- clicality (FSB 2009, p. 2) recommends that “the Basel CGFS (Committee on the Global Financial System).
age ratio did not adequately reflect the trends in nationally harmonized and appropriately cali- Committee should supplement the risk-based capital 2009. The Role of Valuation and Leverage in Procyclical-
financial innovation because significant leverage brated leverage ratio are welcome and could lead requirement with a simple, non-risk based measure to ity. CGFS Papers, no. 34. Basel: Bank for Interna-
crisisresponse PUBLIC POLICY FOR THE PRIVATE SECTOR
was assumed through economic and embedded to its adoption by a wide range of countries in help contain the build-up of leverage in the banking tional Settlements.
DECEMBER 2009
leverage, which is not recorded on the balance the future. A leverage ratio cannot do the job system and put a floor under the Basel II Framework.” FSA (U.K. Financial Services Authority). 2009. The
The views published here
sheet. In addition, factors not captured by the alone; it needs to be complemented by other 2. The Joint Forum (2005) analyzed the embedded Turner Review: A Regulatory Response to the Global Bank-
5 are those of the authors and
leverage ratio or by risk-based capital require- prudential tools or measures to ensure a com- leverage in the tranches of a hypothetical collateralized ing Crisis. London.
should not be attributed
ments also contributed to the crisis, such as weak prehensive picture of the buildup of leverage debt obligation exposed to a portfolio of corporate FSB (Financial Stability Board). 2009. Report of the
underwriting standards for securitized assets and
the buildup of such risks as funding liquidity risk.
As a result, the extent of leverage accumulated
in individual banks or banking groups as well as
in the financial system. Additional measures to
provide a comprehensive view of aggregate lever-
bonds. In that example the leverage of the junior
tranches was about 15 times that of the underlying
portfolio, while the leverage of the most senior tranches
Financial Stability Forum on Addressing Procyclicality in
the Financial System. Basel.
Hildebrand, P. M. 2008. “Is Basel II Enough? The Ben-
to the World Bank Group.
Nor do any of the conclusions
represent official policy of
The Leverage Ratio
the World Bank Group or
in the financial system in recent years has only age, including embedded leverage, and to trigger was between a third and a tenth of that of the underly- efits of a Leverage Ratio.” Financial Markets Group of its Executive Directors or
credit products have high levels of embedded As with regulatory capital measures, the on the amount of customer receivables the invest- age ratio, with an expansive definition of assets Table Hypothetical movements of a leverage multiple or ratio in a fair-value environment
leverage, resulting in an overall exposure to loss leverage ratio generally applies at the level of ment bank could hold as a multiple of capital (net and a conservative definition of capital, as a
1
Leverage multiple Leverage ratio (%)
that is a multiple of a direct investment in the the individual bank as well as on a consolidated capital rule). Only two of the five investment bank supplementary binding measure to the Basel II
Starting point
underlying portfolio. Two-layer securitizations or basis. How the ratio is actually calculated and holding companies originally affected by this rule risk-based framework (BCBS 2009).
Adjusted assets: 100
resecuritizations, such as in the case of a collater- monitored will therefore usually be aligned with still exist (Goldman Sachs and Morgan Stanley),
Tier 1: 4 25 4
alized debt obligation that invests in asset-backed the scope of prudential consolidation practiced however, and they have now been converted into Benefits of the leverage ratio Upturn in credit cycle
securities, can boost embedded leverage to even in a jurisdiction. bank holding companies. Introducing the leverage ratio as an additional Adjusted assets: 100 ⫹ 3 ⫽ 103
higher levels.2 The Canadian “assets to capital multiple” is a prudential tool has several potential benefits. Tier 1: 4 ⫹ 3 ⫽ 7 14.7 6.8
Who uses a leverage ratio? more comprehensive leverage ratio because it also Downturn in credit cycle
2 4
Measures of leverage Three countries with large international banking measures economic leverage to some extent. It is A countercyclical measure Adjusted assets: 100 ⫺ 2 ⫽ 98
The most widely used measure of leverage for reg- systems are either using a leverage ratio or have applied at the level of the consolidated banking The financial crisis has illustrated the disrup- Tier 1: 4 ⫺ 2 ⫽ 2 49 2.04
ulatory purposes is the leverage ratio. Leverage announced plans to do so. The United States and group by dividing an institution’s total adjusted tive effects of procyclicality (amplification of the
can also be expressed as a leverage multiple, which Canada have maintained a leverage ratio alongside consolidated assets—including some off-balance- effects of the business cycle) and of the risk that on the leverage multiple. The leverage ratio limit as those under Basel I or II, may thus encour-
is simply the inverse of the leverage ratio. risk-based capital adequacy requirements, while sheet items5—by its consolidated (Tier 1 and 2) can build up when financial firms acting in an could also be expressed as a range with a long-term age banks to build up relatively riskier balance
The leverage ratio is generally expressed as Switzerland has announced the introduction of a capital. Under this requirement total adjusted individually prudent manner collectively create target level. Alternatively, there could be a mecha- sheets or expand their off-balance-sheet activity.
Tier 1 capital as a proportion of total adjusted leverage ratio that will become effective in 2013. assets should be no greater than 20 times capi- systemic problems. There is now broad consen- nism to relax the limit during downturns, since con- Moreover, because of the crude calculation of the
assets. Tier 1 capital is broadly defined as the sum Other countries will probably also adopt this tool. tal, although a lower multiple can be imposed sus that micro-prudential regulation needs to be stant fixed caps on the leverage ratio (or constant leverage ratio, prudent banks holding substantial
of capital and reserves minus some intangible These countries may use a leverage ratio for both for individual banks by the Canadian supervi- complemented by macro-prudential regulation fixed floors on the leverage multiple) could amplify portfolios of highly liquid, high-quality securities
assets such as goodwill, software expenses, and micro- and macro-prudential purposes—for exam- sory agency, the Office of the Superintendent that smooths the effects of the credit cycle (FSA procyclicality by encouraging banks to deleverage may argue that they are being punished for their
deferred tax assets.3 In calculating the leverage ple, as a maximum leverage limit for supervised of Financial Institutions (OSFI). This is more 2009; Andritzky and others 2009). This has led during a downturn (and vice versa). conservatism.
ratio, these intangibles have to be removed from entities, an indicator for monitoring vulnerability, conservative than the U.S. leverage ratio—and to proposals for countercyclical capital require-
the total asset base as well, to make it comparable or a trigger for increased surveillance or capital the inclusion of off-balance-sheet items strength- ments and loan loss provisions that would be Less regulatory arbitrage Limited to balance sheet leverage
to Tier 1 capital (figure 1). requirements under Pillar 2 of the Basel II capital ens the ratio even more. Indeed, the stringency higher in good times and lower in bad times. The greater risk sensitivity of Basel II capital require- One argument against the leverage ratio has been
The leverage ratio can thus be thought of accord. of Canada’s leverage ratio has been cited as one The leverage ratio is versatile enough to ments can result in a perverse incentive for financial that the United States, despite having a leverage
as a measure of balance sheet or, to the extent Among the three countries, the United States factor—along with sound supervision and regu- be used both as a macro- or micro-prudential institutions to structure products so that they qualify ratio in place, was at the epicenter of the global
that it also includes off-balance-sheet exposures has the simplest leverage ratio, expressed as a lation, good cooperation between regulatory policy tool and as a countercyclical instrument. for lower capital requirements. When this incentive financial crisis. Why did the U.S. leverage ratio
(Breuer 2000), economic leverage. As a result minimum ratio of Tier 1 capital to total average agencies, strict capital requirements, and con- Intuitively, one would expect that in a fair-value is collectively exploited, the system is likely to end up fail to provide the right warning signs? To answer
of differences in accounting regimes, balance adjusted assets (defined as the quarterly average servative lending practices—contributing to the environment a rise in asset prices would boost with high concentrations of structured exposures this question, a good starting point is to analyze
sheet presentation, and domestic regulatory total assets less deductions that include goodwill, strong performance of its financial sector during bank equity or net worth as a percentage of total subject to low regulatory capital requirements. A the evolution of leverage in the years running
adjustments, however, the measurement of lever- investments deducted from Tier 1 capital, and the financial crisis (IMF 2009). assets. Stronger balance sheets would result in a minimum leverage ratio, among other measures, up to the financial crisis.
age ratios varies across jurisdictions and banks. deferred taxes). The leverage ratio is set at 3 In 2008 the Swiss regulator FINMA, in strength- lower leverage multiple. Conversely, in a down- can help dampen this perverse incentive by acting Over the past decades financial innovation
Accounting regimes lead to the largest variations. percent for banks rated “strong” (those that pres- ening capital adequacy requirements, introduced turn, asset prices and the net worth of the institu- as a backstop to risk-based capital requirements has fundamentally changed the structure of
In particular, the use of International Financial ent no supervisory, operational, and managerial a minimum leverage ratio under Pillar 2 of Basel II tion would fall and the leverage multiple would (Hildebrand 2008). Moreover, it can be customized the financial system. This trend is exempli-
Reporting Standards results in significantly weaknesses and are therefore rated highly under solely for Credit Suisse and UBS. The Swiss lever- be likely to increase (table 1). to individual banks’ risk profiles. fied by credit risk transfer instruments such
higher total asset amounts, and therefore lower the supervisory rating system) and at 4 percent age ratio is based on Tier 1 capital as a proportion Contrary to intuition, however, empirical evi- as structured credit products, through which
leverage ratios for similar exposures, than does for all other banks. Banks’ actual leverage ratios of total adjusted assets and is set at a minimum of dence has shown that bank leverage rises during Simplicity portfolios of credit exposures can be sliced
the use of U.S. generally accepted accounting are typically higher than the minimum, however, 3 percent at the consolidated level and 4 percent boom times and falls during downturns. Leverage The leverage ratio is simple to apply and monitor. and repackaged to meet the needs of investors.
principles. The reason is that under International because banks are also subject to prompt correc- at the individual bank level. For the calculation is said to be procyclical because the expansion As a result, it can be adopted quickly and without Banks funded a growing amount of long-term
Financial Reporting Standards netting conditions tive action rules requiring them to maintain a of this new benchmark, the balance sheet under and contraction of balance sheets amplify rather leading to high costs or requirements for exper- assets with short-term liabilities in wholesale
are much stricter and the gross replacement value minimum leverage ratio of 5 percent in order to International Financial Reporting Standards is than counteract the credit cycle. The reason is tise for banks or their supervisors. Moreover, the markets through the use of off-balance-sheet
of derivatives is therefore generally shown on be considered well capitalized. The U.S. leverage adjusted for a number of factors, the most note- that banks actively manage their leverage dur- leverage ratio can be applied regardless of the vehicles, exposing themselves to credit and
the balance sheet, even when positions are held ratio applies on a consolidated basis (at the level worthy being the deduction of the entire domes- ing the cycle using collateralized borrowing and capital adequacy regime in a jurisdiction. liquidity risk by providing facilities to these
under master netting agreements with the same of the bank holding company) as well as at the tic loan book (the Swiss authorities presumably lending. When monetary policy is “loose” relative vehicles. Moreover, they also held structured
counterparty. level of individual banks, but it does not take into wanted to ensure that introducing the leverage to macroeconomic fundamentals, banks expand Limitations of the leverage ratio credit instruments on their own balance sheet,
account off-balance-sheet exposures. A higher ratio would not hamper expansion of the domes- their balance sheets and, as a consequence, the While the leverage ratio offers benefits, it is also exposing themselves to embedded leverage and
Figure How the leverage ratio is calculated ratio may be required for any institution if war- tic credit market). Other adjustments are more supply of liquidity increases. In contrast, when subject to several weaknesses that policy makers increasing their asset-liability mismatch and
ranted by its risk profile or circumstances. common, such as exclusion of the replacement monetary policy is “tight,” banks contract their need to take into account. their funding liquidity risk.
credit products have high levels of embedded As with regulatory capital measures, the on the amount of customer receivables the invest- age ratio, with an expansive definition of assets Table Hypothetical movements of a leverage multiple or ratio in a fair-value environment
leverage, resulting in an overall exposure to loss leverage ratio generally applies at the level of ment bank could hold as a multiple of capital (net and a conservative definition of capital, as a
1
Leverage multiple Leverage ratio (%)
that is a multiple of a direct investment in the the individual bank as well as on a consolidated capital rule). Only two of the five investment bank supplementary binding measure to the Basel II
Starting point
underlying portfolio. Two-layer securitizations or basis. How the ratio is actually calculated and holding companies originally affected by this rule risk-based framework (BCBS 2009).
Adjusted assets: 100
resecuritizations, such as in the case of a collater- monitored will therefore usually be aligned with still exist (Goldman Sachs and Morgan Stanley),
Tier 1: 4 25 4
alized debt obligation that invests in asset-backed the scope of prudential consolidation practiced however, and they have now been converted into Benefits of the leverage ratio Upturn in credit cycle
securities, can boost embedded leverage to even in a jurisdiction. bank holding companies. Introducing the leverage ratio as an additional Adjusted assets: 100 ⫹ 3 ⫽ 103
higher levels.2 The Canadian “assets to capital multiple” is a prudential tool has several potential benefits. Tier 1: 4 ⫹ 3 ⫽ 7 14.7 6.8
Who uses a leverage ratio? more comprehensive leverage ratio because it also Downturn in credit cycle
2 4
Measures of leverage Three countries with large international banking measures economic leverage to some extent. It is A countercyclical measure Adjusted assets: 100 ⫺ 2 ⫽ 98
The most widely used measure of leverage for reg- systems are either using a leverage ratio or have applied at the level of the consolidated banking The financial crisis has illustrated the disrup- Tier 1: 4 ⫺ 2 ⫽ 2 49 2.04
ulatory purposes is the leverage ratio. Leverage announced plans to do so. The United States and group by dividing an institution’s total adjusted tive effects of procyclicality (amplification of the
can also be expressed as a leverage multiple, which Canada have maintained a leverage ratio alongside consolidated assets—including some off-balance- effects of the business cycle) and of the risk that on the leverage multiple. The leverage ratio limit as those under Basel I or II, may thus encour-
is simply the inverse of the leverage ratio. risk-based capital adequacy requirements, while sheet items5—by its consolidated (Tier 1 and 2) can build up when financial firms acting in an could also be expressed as a range with a long-term age banks to build up relatively riskier balance
The leverage ratio is generally expressed as Switzerland has announced the introduction of a capital. Under this requirement total adjusted individually prudent manner collectively create target level. Alternatively, there could be a mecha- sheets or expand their off-balance-sheet activity.
Tier 1 capital as a proportion of total adjusted leverage ratio that will become effective in 2013. assets should be no greater than 20 times capi- systemic problems. There is now broad consen- nism to relax the limit during downturns, since con- Moreover, because of the crude calculation of the
assets. Tier 1 capital is broadly defined as the sum Other countries will probably also adopt this tool. tal, although a lower multiple can be imposed sus that micro-prudential regulation needs to be stant fixed caps on the leverage ratio (or constant leverage ratio, prudent banks holding substantial
of capital and reserves minus some intangible These countries may use a leverage ratio for both for individual banks by the Canadian supervi- complemented by macro-prudential regulation fixed floors on the leverage multiple) could amplify portfolios of highly liquid, high-quality securities
assets such as goodwill, software expenses, and micro- and macro-prudential purposes—for exam- sory agency, the Office of the Superintendent that smooths the effects of the credit cycle (FSA procyclicality by encouraging banks to deleverage may argue that they are being punished for their
deferred tax assets.3 In calculating the leverage ple, as a maximum leverage limit for supervised of Financial Institutions (OSFI). This is more 2009; Andritzky and others 2009). This has led during a downturn (and vice versa). conservatism.
ratio, these intangibles have to be removed from entities, an indicator for monitoring vulnerability, conservative than the U.S. leverage ratio—and to proposals for countercyclical capital require-
the total asset base as well, to make it comparable or a trigger for increased surveillance or capital the inclusion of off-balance-sheet items strength- ments and loan loss provisions that would be Less regulatory arbitrage Limited to balance sheet leverage
to Tier 1 capital (figure 1). requirements under Pillar 2 of the Basel II capital ens the ratio even more. Indeed, the stringency higher in good times and lower in bad times. The greater risk sensitivity of Basel II capital require- One argument against the leverage ratio has been
The leverage ratio can thus be thought of accord. of Canada’s leverage ratio has been cited as one The leverage ratio is versatile enough to ments can result in a perverse incentive for financial that the United States, despite having a leverage
as a measure of balance sheet or, to the extent Among the three countries, the United States factor—along with sound supervision and regu- be used both as a macro- or micro-prudential institutions to structure products so that they qualify ratio in place, was at the epicenter of the global
that it also includes off-balance-sheet exposures has the simplest leverage ratio, expressed as a lation, good cooperation between regulatory policy tool and as a countercyclical instrument. for lower capital requirements. When this incentive financial crisis. Why did the U.S. leverage ratio
(Breuer 2000), economic leverage. As a result minimum ratio of Tier 1 capital to total average agencies, strict capital requirements, and con- Intuitively, one would expect that in a fair-value is collectively exploited, the system is likely to end up fail to provide the right warning signs? To answer
of differences in accounting regimes, balance adjusted assets (defined as the quarterly average servative lending practices—contributing to the environment a rise in asset prices would boost with high concentrations of structured exposures this question, a good starting point is to analyze
sheet presentation, and domestic regulatory total assets less deductions that include goodwill, strong performance of its financial sector during bank equity or net worth as a percentage of total subject to low regulatory capital requirements. A the evolution of leverage in the years running
adjustments, however, the measurement of lever- investments deducted from Tier 1 capital, and the financial crisis (IMF 2009). assets. Stronger balance sheets would result in a minimum leverage ratio, among other measures, up to the financial crisis.
age ratios varies across jurisdictions and banks. deferred taxes). The leverage ratio is set at 3 In 2008 the Swiss regulator FINMA, in strength- lower leverage multiple. Conversely, in a down- can help dampen this perverse incentive by acting Over the past decades financial innovation
Accounting regimes lead to the largest variations. percent for banks rated “strong” (those that pres- ening capital adequacy requirements, introduced turn, asset prices and the net worth of the institu- as a backstop to risk-based capital requirements has fundamentally changed the structure of
In particular, the use of International Financial ent no supervisory, operational, and managerial a minimum leverage ratio under Pillar 2 of Basel II tion would fall and the leverage multiple would (Hildebrand 2008). Moreover, it can be customized the financial system. This trend is exempli-
Reporting Standards results in significantly weaknesses and are therefore rated highly under solely for Credit Suisse and UBS. The Swiss lever- be likely to increase (table 1). to individual banks’ risk profiles. fied by credit risk transfer instruments such
higher total asset amounts, and therefore lower the supervisory rating system) and at 4 percent age ratio is based on Tier 1 capital as a proportion Contrary to intuition, however, empirical evi- as structured credit products, through which
leverage ratios for similar exposures, than does for all other banks. Banks’ actual leverage ratios of total adjusted assets and is set at a minimum of dence has shown that bank leverage rises during Simplicity portfolios of credit exposures can be sliced
the use of U.S. generally accepted accounting are typically higher than the minimum, however, 3 percent at the consolidated level and 4 percent boom times and falls during downturns. Leverage The leverage ratio is simple to apply and monitor. and repackaged to meet the needs of investors.
principles. The reason is that under International because banks are also subject to prompt correc- at the individual bank level. For the calculation is said to be procyclical because the expansion As a result, it can be adopted quickly and without Banks funded a growing amount of long-term
Financial Reporting Standards netting conditions tive action rules requiring them to maintain a of this new benchmark, the balance sheet under and contraction of balance sheets amplify rather leading to high costs or requirements for exper- assets with short-term liabilities in wholesale
are much stricter and the gross replacement value minimum leverage ratio of 5 percent in order to International Financial Reporting Standards is than counteract the credit cycle. The reason is tise for banks or their supervisors. Moreover, the markets through the use of off-balance-sheet
of derivatives is therefore generally shown on be considered well capitalized. The U.S. leverage adjusted for a number of factors, the most note- that banks actively manage their leverage dur- leverage ratio can be applied regardless of the vehicles, exposing themselves to credit and
the balance sheet, even when positions are held ratio applies on a consolidated basis (at the level worthy being the deduction of the entire domes- ing the cycle using collateralized borrowing and capital adequacy regime in a jurisdiction. liquidity risk by providing facilities to these
under master netting agreements with the same of the bank holding company) as well as at the tic loan book (the Swiss authorities presumably lending. When monetary policy is “loose” relative vehicles. Moreover, they also held structured
counterparty. level of individual banks, but it does not take into wanted to ensure that introducing the leverage to macroeconomic fundamentals, banks expand Limitations of the leverage ratio credit instruments on their own balance sheet,
account off-balance-sheet exposures. A higher ratio would not hamper expansion of the domes- their balance sheets and, as a consequence, the While the leverage ratio offers benefits, it is also exposing themselves to embedded leverage and
Figure How the leverage ratio is calculated ratio may be required for any institution if war- tic credit market). Other adjustments are more supply of liquidity increases. In contrast, when subject to several weaknesses that policy makers increasing their asset-liability mismatch and
ranted by its risk profile or circumstances. common, such as exclusion of the replacement monetary policy is “tight,” banks contract their need to take into account. their funding liquidity risk.
credit products have high levels of embedded As with regulatory capital measures, the on the amount of customer receivables the invest- age ratio, with an expansive definition of assets Table Hypothetical movements of a leverage multiple or ratio in a fair-value environment
leverage, resulting in an overall exposure to loss leverage ratio generally applies at the level of ment bank could hold as a multiple of capital (net and a conservative definition of capital, as a
1
Leverage multiple Leverage ratio (%)
that is a multiple of a direct investment in the the individual bank as well as on a consolidated capital rule). Only two of the five investment bank supplementary binding measure to the Basel II
Starting point
underlying portfolio. Two-layer securitizations or basis. How the ratio is actually calculated and holding companies originally affected by this rule risk-based framework (BCBS 2009).
Adjusted assets: 100
resecuritizations, such as in the case of a collater- monitored will therefore usually be aligned with still exist (Goldman Sachs and Morgan Stanley),
Tier 1: 4 25 4
alized debt obligation that invests in asset-backed the scope of prudential consolidation practiced however, and they have now been converted into Benefits of the leverage ratio Upturn in credit cycle
securities, can boost embedded leverage to even in a jurisdiction. bank holding companies. Introducing the leverage ratio as an additional Adjusted assets: 100 ⫹ 3 ⫽ 103
higher levels.2 The Canadian “assets to capital multiple” is a prudential tool has several potential benefits. Tier 1: 4 ⫹ 3 ⫽ 7 14.7 6.8
Who uses a leverage ratio? more comprehensive leverage ratio because it also Downturn in credit cycle
2 4
Measures of leverage Three countries with large international banking measures economic leverage to some extent. It is A countercyclical measure Adjusted assets: 100 ⫺ 2 ⫽ 98
The most widely used measure of leverage for reg- systems are either using a leverage ratio or have applied at the level of the consolidated banking The financial crisis has illustrated the disrup- Tier 1: 4 ⫺ 2 ⫽ 2 49 2.04
ulatory purposes is the leverage ratio. Leverage announced plans to do so. The United States and group by dividing an institution’s total adjusted tive effects of procyclicality (amplification of the
can also be expressed as a leverage multiple, which Canada have maintained a leverage ratio alongside consolidated assets—including some off-balance- effects of the business cycle) and of the risk that on the leverage multiple. The leverage ratio limit as those under Basel I or II, may thus encour-
is simply the inverse of the leverage ratio. risk-based capital adequacy requirements, while sheet items5—by its consolidated (Tier 1 and 2) can build up when financial firms acting in an could also be expressed as a range with a long-term age banks to build up relatively riskier balance
The leverage ratio is generally expressed as Switzerland has announced the introduction of a capital. Under this requirement total adjusted individually prudent manner collectively create target level. Alternatively, there could be a mecha- sheets or expand their off-balance-sheet activity.
Tier 1 capital as a proportion of total adjusted leverage ratio that will become effective in 2013. assets should be no greater than 20 times capi- systemic problems. There is now broad consen- nism to relax the limit during downturns, since con- Moreover, because of the crude calculation of the
assets. Tier 1 capital is broadly defined as the sum Other countries will probably also adopt this tool. tal, although a lower multiple can be imposed sus that micro-prudential regulation needs to be stant fixed caps on the leverage ratio (or constant leverage ratio, prudent banks holding substantial
of capital and reserves minus some intangible These countries may use a leverage ratio for both for individual banks by the Canadian supervi- complemented by macro-prudential regulation fixed floors on the leverage multiple) could amplify portfolios of highly liquid, high-quality securities
assets such as goodwill, software expenses, and micro- and macro-prudential purposes—for exam- sory agency, the Office of the Superintendent that smooths the effects of the credit cycle (FSA procyclicality by encouraging banks to deleverage may argue that they are being punished for their
deferred tax assets.3 In calculating the leverage ple, as a maximum leverage limit for supervised of Financial Institutions (OSFI). This is more 2009; Andritzky and others 2009). This has led during a downturn (and vice versa). conservatism.
ratio, these intangibles have to be removed from entities, an indicator for monitoring vulnerability, conservative than the U.S. leverage ratio—and to proposals for countercyclical capital require-
the total asset base as well, to make it comparable or a trigger for increased surveillance or capital the inclusion of off-balance-sheet items strength- ments and loan loss provisions that would be Less regulatory arbitrage Limited to balance sheet leverage
to Tier 1 capital (figure 1). requirements under Pillar 2 of the Basel II capital ens the ratio even more. Indeed, the stringency higher in good times and lower in bad times. The greater risk sensitivity of Basel II capital require- One argument against the leverage ratio has been
The leverage ratio can thus be thought of accord. of Canada’s leverage ratio has been cited as one The leverage ratio is versatile enough to ments can result in a perverse incentive for financial that the United States, despite having a leverage
as a measure of balance sheet or, to the extent Among the three countries, the United States factor—along with sound supervision and regu- be used both as a macro- or micro-prudential institutions to structure products so that they qualify ratio in place, was at the epicenter of the global
that it also includes off-balance-sheet exposures has the simplest leverage ratio, expressed as a lation, good cooperation between regulatory policy tool and as a countercyclical instrument. for lower capital requirements. When this incentive financial crisis. Why did the U.S. leverage ratio
(Breuer 2000), economic leverage. As a result minimum ratio of Tier 1 capital to total average agencies, strict capital requirements, and con- Intuitively, one would expect that in a fair-value is collectively exploited, the system is likely to end up fail to provide the right warning signs? To answer
of differences in accounting regimes, balance adjusted assets (defined as the quarterly average servative lending practices—contributing to the environment a rise in asset prices would boost with high concentrations of structured exposures this question, a good starting point is to analyze
sheet presentation, and domestic regulatory total assets less deductions that include goodwill, strong performance of its financial sector during bank equity or net worth as a percentage of total subject to low regulatory capital requirements. A the evolution of leverage in the years running
adjustments, however, the measurement of lever- investments deducted from Tier 1 capital, and the financial crisis (IMF 2009). assets. Stronger balance sheets would result in a minimum leverage ratio, among other measures, up to the financial crisis.
age ratios varies across jurisdictions and banks. deferred taxes). The leverage ratio is set at 3 In 2008 the Swiss regulator FINMA, in strength- lower leverage multiple. Conversely, in a down- can help dampen this perverse incentive by acting Over the past decades financial innovation
Accounting regimes lead to the largest variations. percent for banks rated “strong” (those that pres- ening capital adequacy requirements, introduced turn, asset prices and the net worth of the institu- as a backstop to risk-based capital requirements has fundamentally changed the structure of
In particular, the use of International Financial ent no supervisory, operational, and managerial a minimum leverage ratio under Pillar 2 of Basel II tion would fall and the leverage multiple would (Hildebrand 2008). Moreover, it can be customized the financial system. This trend is exempli-
Reporting Standards results in significantly weaknesses and are therefore rated highly under solely for Credit Suisse and UBS. The Swiss lever- be likely to increase (table 1). to individual banks’ risk profiles. fied by credit risk transfer instruments such
higher total asset amounts, and therefore lower the supervisory rating system) and at 4 percent age ratio is based on Tier 1 capital as a proportion Contrary to intuition, however, empirical evi- as structured credit products, through which
leverage ratios for similar exposures, than does for all other banks. Banks’ actual leverage ratios of total adjusted assets and is set at a minimum of dence has shown that bank leverage rises during Simplicity portfolios of credit exposures can be sliced
the use of U.S. generally accepted accounting are typically higher than the minimum, however, 3 percent at the consolidated level and 4 percent boom times and falls during downturns. Leverage The leverage ratio is simple to apply and monitor. and repackaged to meet the needs of investors.
principles. The reason is that under International because banks are also subject to prompt correc- at the individual bank level. For the calculation is said to be procyclical because the expansion As a result, it can be adopted quickly and without Banks funded a growing amount of long-term
Financial Reporting Standards netting conditions tive action rules requiring them to maintain a of this new benchmark, the balance sheet under and contraction of balance sheets amplify rather leading to high costs or requirements for exper- assets with short-term liabilities in wholesale
are much stricter and the gross replacement value minimum leverage ratio of 5 percent in order to International Financial Reporting Standards is than counteract the credit cycle. The reason is tise for banks or their supervisors. Moreover, the markets through the use of off-balance-sheet
of derivatives is therefore generally shown on be considered well capitalized. The U.S. leverage adjusted for a number of factors, the most note- that banks actively manage their leverage dur- leverage ratio can be applied regardless of the vehicles, exposing themselves to credit and
the balance sheet, even when positions are held ratio applies on a consolidated basis (at the level worthy being the deduction of the entire domes- ing the cycle using collateralized borrowing and capital adequacy regime in a jurisdiction. liquidity risk by providing facilities to these
under master netting agreements with the same of the bank holding company) as well as at the tic loan book (the Swiss authorities presumably lending. When monetary policy is “loose” relative vehicles. Moreover, they also held structured
counterparty. level of individual banks, but it does not take into wanted to ensure that introducing the leverage to macroeconomic fundamentals, banks expand Limitations of the leverage ratio credit instruments on their own balance sheet,
account off-balance-sheet exposures. A higher ratio would not hamper expansion of the domes- their balance sheets and, as a consequence, the While the leverage ratio offers benefits, it is also exposing themselves to embedded leverage and
Figure How the leverage ratio is calculated ratio may be required for any institution if war- tic credit market). Other adjustments are more supply of liquidity increases. In contrast, when subject to several weaknesses that policy makers increasing their asset-liability mismatch and
ranted by its risk profile or circumstances. common, such as exclusion of the replacement monetary policy is “tight,” banks contract their need to take into account. their funding liquidity risk.
NOTE NUMBER 11
mercial banks, by contrast, aggregate balance makers need to be cognizant of the inherent limi- into account off-balance sheet exposures, and can help Breuer, P. 2000. “Measuring Off-Balance Sheet Lever-
sheet leverage did not increase over this period, tations and weaknesses of the leverage ratio. contain the build-up of leverage in the banking system.” age.” IMF Working Paper 00/202, International
and in some instances it even fell. The proposals at an international level to Similarly, the Financial Stability Board report on procy- Monetary Fund, Washington, DC.
As can be deduced, the balance sheet lever- supplement risk-based measures with an inter- clicality (FSB 2009, p. 2) recommends that “the Basel CGFS (Committee on the Global Financial System).
age ratio did not adequately reflect the trends in nationally harmonized and appropriately cali- Committee should supplement the risk-based capital 2009. The Role of Valuation and Leverage in Procyclical-
financial innovation because significant leverage brated leverage ratio are welcome and could lead requirement with a simple, non-risk based measure to ity. CGFS Papers, no. 34. Basel: Bank for Interna-
crisisresponse PUBLIC POLICY FOR THE PRIVATE SECTOR
was assumed through economic and embedded to its adoption by a wide range of countries in help contain the build-up of leverage in the banking tional Settlements.
DECEMBER 2009
leverage, which is not recorded on the balance the future. A leverage ratio cannot do the job system and put a floor under the Basel II Framework.” FSA (U.K. Financial Services Authority). 2009. The
The views published here
sheet. In addition, factors not captured by the alone; it needs to be complemented by other 2. The Joint Forum (2005) analyzed the embedded Turner Review: A Regulatory Response to the Global Bank-
5 are those of the authors and
leverage ratio or by risk-based capital require- prudential tools or measures to ensure a com- leverage in the tranches of a hypothetical collateralized ing Crisis. London.
should not be attributed
ments also contributed to the crisis, such as weak prehensive picture of the buildup of leverage debt obligation exposed to a portfolio of corporate FSB (Financial Stability Board). 2009. Report of the
underwriting standards for securitized assets and
the buildup of such risks as funding liquidity risk.
As a result, the extent of leverage accumulated
in individual banks or banking groups as well as
in the financial system. Additional measures to
provide a comprehensive view of aggregate lever-
bonds. In that example the leverage of the junior
tranches was about 15 times that of the underlying
portfolio, while the leverage of the most senior tranches
Financial Stability Forum on Addressing Procyclicality in
the Financial System. Basel.
Hildebrand, P. M. 2008. “Is Basel II Enough? The Ben-
to the World Bank Group.
Nor do any of the conclusions
represent official policy of
The Leverage Ratio
the World Bank Group or
in the financial system in recent years has only age, including embedded leverage, and to trigger was between a third and a tenth of that of the underly- efits of a Leverage Ratio.” Financial Markets Group of its Executive Directors or
NOTE NUMBER 11
mercial banks, by contrast, aggregate balance makers need to be cognizant of the inherent limi- into account off-balance sheet exposures, and can help Breuer, P. 2000. “Measuring Off-Balance Sheet Lever-
sheet leverage did not increase over this period, tations and weaknesses of the leverage ratio. contain the build-up of leverage in the banking system.” age.” IMF Working Paper 00/202, International
and in some instances it even fell. The proposals at an international level to Similarly, the Financial Stability Board report on procy- Monetary Fund, Washington, DC.
As can be deduced, the balance sheet lever- supplement risk-based measures with an inter- clicality (FSB 2009, p. 2) recommends that “the Basel CGFS (Committee on the Global Financial System).
age ratio did not adequately reflect the trends in nationally harmonized and appropriately cali- Committee should supplement the risk-based capital 2009. The Role of Valuation and Leverage in Procyclical-
financial innovation because significant leverage brated leverage ratio are welcome and could lead requirement with a simple, non-risk based measure to ity. CGFS Papers, no. 34. Basel: Bank for Interna-
crisisresponse PUBLIC POLICY FOR THE PRIVATE SECTOR
was assumed through economic and embedded to its adoption by a wide range of countries in help contain the build-up of leverage in the banking tional Settlements.
DECEMBER 2009
leverage, which is not recorded on the balance the future. A leverage ratio cannot do the job system and put a floor under the Basel II Framework.” FSA (U.K. Financial Services Authority). 2009. The
The views published here
sheet. In addition, factors not captured by the alone; it needs to be complemented by other 2. The Joint Forum (2005) analyzed the embedded Turner Review: A Regulatory Response to the Global Bank-
5 are those of the authors and
leverage ratio or by risk-based capital require- prudential tools or measures to ensure a com- leverage in the tranches of a hypothetical collateralized ing Crisis. London.
should not be attributed
ments also contributed to the crisis, such as weak prehensive picture of the buildup of leverage debt obligation exposed to a portfolio of corporate FSB (Financial Stability Board). 2009. Report of the
underwriting standards for securitized assets and
the buildup of such risks as funding liquidity risk.
As a result, the extent of leverage accumulated
in individual banks or banking groups as well as
in the financial system. Additional measures to
provide a comprehensive view of aggregate lever-
bonds. In that example the leverage of the junior
tranches was about 15 times that of the underlying
portfolio, while the leverage of the most senior tranches
Financial Stability Forum on Addressing Procyclicality in
the Financial System. Basel.
Hildebrand, P. M. 2008. “Is Basel II Enough? The Ben-
to the World Bank Group.
Nor do any of the conclusions
represent official policy of
The Leverage Ratio
the World Bank Group or
in the financial system in recent years has only age, including embedded leverage, and to trigger was between a third and a tenth of that of the underly- efits of a Leverage Ratio.” Financial Markets Group of its Executive Directors or