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               Researh Sevice






The National Flood Insurance Program

(NFIP), Reinsurance, and Catastrophe Bonds



Updated January 6, 2020
Insurance generally serves to transfer risk from one entity who does not want to bear that risk to another
entity that does. An initial insurance purchase, such as homeowners buying a policy to cover damage to
their home, however, is often only the first transfer of that risk. The initial (or primary) insurer may then
transfer (or cede) some or all of this risk to another company or investor, such as a reinsurer. Reinsurers
may also further transfer (or retrocede) risks to other reinsurers. Such transfers are, on the whole, a net
cost for primary insurers, just as purchasing insurance is a net cost for homeowners.
The Homeowner Flood Insurance Affordability Act of 2014 (P.L. 113-89) revised the authority of the
National Flood Insurance Program (NFIP) to secure reinsurance from private reinsurance and capital
markets. Risk transfer to the private market could reduce the likelihood of the Federal Emergency
Management Agency (FEMA) borrowing friom the Treasury to pay claims. In addition, it could allow the
NFIP to recognize some of its flood risk up front through premiums it pays for risk transfers rather than
after-the-fact borrowing, and could help the NFIP to reduce the volatility of its losses over time. However,
because reinsurers charge premiums to compensate for the assumed risk as well as the reinsurers' costs
and profit margins, the primary benefit of reinsurance is to manage risk, not to reduce the NFIP's long-
term fiscal exposure.


Reinsurance

The most common form of risk transfer is a primary insurer purchasing coverage for its risks from
another (re)insurer. The primary insurer continues to service the initial policy, while the reinsurer operates
in the background. Reinsurance is particularly important to smaller insurers who may not be large enough
to spread correlated local risks, such as a storm hitting a specific area, across a broader geographic area.
Reinsurers, however, often have the size to diversify risks on a global scale.

NFIP Reinsurance Purchases
The NFIP's first large reinsurance purchase was in 2017, with additional purchases in 2018, 2019, and
2020. The details of these purchases have varied, but they have all covered losses from a single flooding
event starting at $4 billion and going up to $8-S10 billion, with total potential payouts ranging from
                                                                Congressional Research Service
                                                                https://crsreports.congress.gov
                                                                                     IN10965

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