There
was an article in the FT today calling into question US Eximbank's
and PEFCO's due diligence in connection with an approval of a
supplier credit transaction for Freeport LNG involving Greensill as
lender.
The
timing raises questions about the due diligence that the Exim Bank
and Pefco, its funding partner on the deal, conducted on Greensill,
whose German banking subsidiary was under investigation by regulators
last year.
I
think the questions raised can be answered: no.
Summary:
Eximbank and PEFCO have no financial
exposure (credit risk) to Greensill in this transaction. As such,
their due diligence was appropriate at the time it was conducted.
Eximbank’s primary focus in this
transaction and others is (a) the promotion of US exports and (b)
creation of US jobs.
Or in other words, Eximbank's customer here is Freeport. Greensill is a service provider.
At this point, the ability of
Greensill to fulfill its obligations under the transaction are in
question. Eximbank is no doubt looking for a replacement.
That raises two issues: (a) finding
an FI able to handle the supply chain invoice processing and (b) one
willing to take risk (10%) on Freeport.
Detailed
Argument
Now
to the details that support those contentions.
At
its 29
September 2020 Board of Directors Meeting ,US Eximbank approved a
90% guarantee under its Supply
Chain Finance
Program
for transactions involving
Freeport LNG Marketing LLC as
the obligor. (Eximbank
reference AP089370XX).
Note
that date. Eximbank issued its commitment in September 2020.
At
this point concrete news about Greensill’s situation was much
different than in January 2021. So if there is an issue with
Eximbank’s due diligence, it has to be focused on the period before
29 September 2020.
Eximbank
lending is highly rules based. Procedures for approval are more
complex and thus more time consuming than in a typical financial
institution.
The
board approval package would have been prepared, reviewed, and finalized well before the board meeting.
You
can well expect that as well preparation and approval of transaction
documentation is similar.
That explains the time taken
to finalization.
Some
key points about this transaction.
Freeport is the obligor on the loan.
Eximbank's credit risk lies
squarely here.
US Eximbank guarantees to pay the
lender 90% of principal if Freeport doesn’t pay.
The lender bears the risk of the
unguaranteed 10%.
US Eximbank is
providing a guarantee not
funding.
If the lender does not or can not
lend, then Eximbank has no exposure to either the obligor (in this
case Freeport) or any obligation to the lender (Greensill).
Eximbank reviews the documentation
for each transaction under an
approval for compliance with
(a) the terms and conditions
of its approval and (b) US
content requirements. Then and only then it
issues a “guarantee” for that transaction.
Clearly,
then the primary focus of Eximbank’s due diligence would be on
Freeport.
Due
diligence on the lender would focus on its ability to handle a supply
chain transaction both in terms of systems and experience as well as no "blocking" issues.
Those would include legal prohibitions, e.g., US sanctions, etc.
Greensill passed those tests at the time of due diligence.
If the bar were set to exclude those FIs that engaged in reckless banking practices (imprudent lending, over concentration of risks, market manipulation) or illegal behaviour, then the set of "acceptable" banks for US Eximbank would appear to be fairly limited. And exclude a large number of the G-SIBs.
PEFCO
is a specialist private sector owned lender that provides primary and
secondary funding for loans guaranteed by US Eximbank. It also does
a very minuscule business in other sovereign guaranteed loans.
Roughly 1.4% of total loans.
Eximbank
exercises “oversight” on PEFCO’s operations beyond that it does
with other financial institutions to which it may give a guarantee.
Given
the nature of its business, PEFCO is able to access both fixed and
floating rate funding at very attractive rates.
In
the Freeport transaction, PEFCO reportedly acquired a 100%
“participation interest” in the Eximbank guaranteed portion of
the Freeport loan.
That
would mean that Greensill remained at risk of non payment on the
unguaranteed 10%.
For
the same reasons as above, PEFCO has no credit risk exposure to
Greensill.
Given
the Eximbank guarantee, it has none to Freeport.
Its
decision to enter the transaction was almost certainly based on the
US Eximbank guarantee.
PEFCO’s s
role in the transaction would be to provide competitively priced
funding in the form of a lower
discount rate than Greensill could obtain in the market
That
is, when Greensill presented PEFCO
an
Eximbank approved (guaranteed) supplier invoice,
it would buy the invoice
from Greensill at an
agreed discount rate.
To
reiterate: Eximbank's guarantee is evidenced by its issuance of a
document after it examines the invoice and any supporting documents
to ensure that (a) US content and other requirements have been met
and (b) the transaction complies with the conditions of that
approval.
PEFCO
would make sure to confirm the guarantee.
Greenill’s
compensation would be potentially a mixture of (a) the difference
between its discount rate and PEFCO’s (b) any upfront fee it
charged Freeport, and (c) any fees it charges Freeport for the processing of the
supplier invoices.
What is to be done now?
Now
there is a question as to what Eximbank “should” do now that
Greensill has crashed or when the probability of its crash became apparent.
As
noted above, Eximbank’s mission is to promote US exports and US
jobs.
So it would be rather reluctant to throw the Freeport "baby" (its customer) out with the
Greensill "bathwater" (a service provider).
As a general rule, Eximbank tends to very "high church" in honoring commitments/approvals it has given.
Part of this is institutionally motivated to maintain market confidence in its "word".
Part is concern that its customer may have made financial commitments and would therefore incur a loss, if Eximbank were to walk away.
Eximbank
and Freeport are no doubt looking for a replacement institution with
the capacity to process supply chain finance.
And the willingness to hold 10% of the risk of any
outstandings within the US$ 50 million.
Two other key considerations for Eximbank.
The
SCF program has been in existence for a few years. Frankly, usage
has been disappointing.
Eximbank
has also domestic political considerations given its recent close
encounter with the grim reaper.