It’s a problem that could cripple economies and threaten livelihoods across the Pacific.
Some Western banks have been getting out of the region, and Australia fears a full-blown exodus in coming years.
It’s not just that some banks are shutting up shop. The financial architecture that allows money to flow into and around the region is also under serious strain.
So what are the problems? What can governments, banks and financial institutions do to fix them?
And what might the consequences be if they can’t find an effective solution?
If you’re in the Pacific, getting access to banking services often isn’t that straightforward — and it could soon become worse.
First, accessing bricks and mortar branches is becoming an issue. Some Australian banks appear to be edging away from the Pacific.
For example, Australia’s Bendigo Bank has announced it will withdraw from Nauru next year — a move that risks leaving the small Pacific nation without a bank.
Unlike other Australian banks, ANZ has long maintained a major presence across the Pacific.
But in recent years it too has sold off assets in Papua New Guinea, closed 10 branches across the region and exited both American Samoa and Guam.
Westpac was also trying to sell its Pacific businesses in PNG and Fiji, before abruptly cancelling that plan last year.
But the main problem goes deeper, and beyond the simple question of bank closures.
Correspondent banking relationships are already in steep decline across the Pacific.
These ties are critical because they allow banks that don’t have a physical presence in the Pacific to provide services via those banks that do, facilitating wire transfers, business transactions and deposits.
But between 2011 and 2022, the Pacific lost about 60 per cent of its correspondent banking relationships, making it much harder for those in the region to make transactions in international currencies.
That figure is even higher if you look at services denominated in US dollars, with Western banks cancelling a staggering 80 per cent of all their correspondent relationships with Pacific institutions.
That means critical transactions and payments rest on a dwindling number of key commercial relationships.
If all these trends continue, then more people in the Pacific could soon struggle to access affordable banking services.
It could also make it even more expensive for Pacific Islanders to send and receive remittances for work done overseas, which is already not a cheap exercise.
That would present a massive problem for Pacific families and governments which rely heavily on those payments to stay financially afloat.
In Fiji, for example, remittances soared to a record high $F1.25 billion ($853.5 million) in 2023, more than 20 per cent above the year before, making it the second-largest earner for the country behind tourism.
Other difficulties could also crop up quickly.
Pacific governments would struggle to access payments from overseas governments — including development funding of relief payments — without major delays. Financial activity could quickly shift to informal or black market channels.
It would also mean businesses would struggle to make cross-border payments, dealing a hit to trade and exports — something the Pacific can ill afford right now during its fragile post-pandemic recovery.
It’s complicated. But banks point the finger at two main problems.
The first one is that the Pacific markets are small (and therefore not very profitable) but can still be quite difficult to operate in because they’ve each got their own set of specific rules and regulations.
Last month a host of bankers and officials from Australia, the United States and the Pacific gathered in Brisbane to talk about the challenges facing the region’s banking.
The chief executive of ANZ, Shayne Elliott, gave a fairly blunt and candid account of how his bank saw the landscape, saying that doing business in the Pacific could be “complex”.
“Each country has its own laws, regulations, customs and tax,” he said.
“While it’s important that each country charts its own course, this can create costs for businesses that want to operate across the region.”
The second problem is that some countries, particularly the US, have introduced tougher financial crime regulations globally to crack down on things such as money laundering and terrorism financing.
That means that plenty of banks are engaging in what’s called “de-risking” — pulling out of correspondent banking relationships in regions such as the Pacific where the returns are low and the risk of being caught up in illegal activity remains real.
Banks are also sceptical that Pacific regulators and police have the tools they need to combat financial crime, particularly that carried out by sophisticated international actors.
Mr Elliot told the Pacific Banking Forum that “few banks have an appetite to get financial crime wrong” and more banks were demanding “higher due diligence”.
“These two pressures mean that high-cost and high-risk countries that don’t offer scale have become less attractive for banks to serve,” he said.
“While the Pacific is not unique in facing this challenge, it is an area that is badly affected by it.”
But not everyone in the Pacific sees the problem from that perspective, even if they come up with a very similar diagnosis.
Some Pacific officials made it clear during the forum they were frustrated by onerous regulations which had effectively been imposed on them by outside banks and governments.
Cook Islands Prime Minister Mark Brown, the current chair of the Pacific Islands Forum, suggested Western governments and corporations had largely created the problem, and needed to help the Pacific find solutions.
“What we’re saying is that if you’re not going to address concerns and issues we have, Pacific countries will start looking elsewhere for support,” he told Reuters.
And it wasn’t hard to guess what the prime minister meant when he said “elsewhere”.
None of these problems are being tackled in a geopolitical vacuum and — as ever — China looms large over the conversation
Right now Chinese financial institutions barely have a presence in the Pacific.
But that might be changing.
The Bank of China has already opened an office in Port Moresby (although it doesn’t yet operate a branch there) and earlier this year its representatives made a well-publicised visit to Nauru, which faces the prospect of losing all banking services with Bendigo’s withdrawal.
Last month, Vanuatu’s Prime Minister Charlot Salwai visited the Bank of China headquarters and said he would like the institution to set up a branch in his country.
Reuters has also reported that Chinese banks have “expressed interest” in setting up branches in Tonga, Samoa and Solomon Islands, citing central bank representatives from all three countries.
Australia is both uneasy and suspicious about that prospect, fearing Bank of China will be used as a vehicle for Beijing’s broader strategic ambitions across the Pacific.
Assistant Treasurer and Minister for Financial Services Stephen Jones said during the Pacific Banking Forum that Australia would be “concerned if there were nations operating within the region whose principle objective was advancing their own national interest as opposed to the interests of the Pacific Island nations”, although he didn’t name Beijing directly.
And given Australia is now locked in what Foreign Minister Penny Wong has called a “permanent contest” with China in the Pacific, the federal government is also increasingly trying to pull in the private sector to help.
But that task is not always an easy one.
The federal government has been locked in discussions with several Australian banks as it tries to convince them not to pull out of the region.
Australian officials scored a win last year when Westpac agreed to hold on to its Pacific businesses.
And there are murmurs the Commonwealth Bank might agree to replace Bendigo in Nauru, potentially with support from the federal government, although neither the bank nor Australian officials want to comment at this stage.
These negotiations aren’t always easy. Unlike China, Australia can’t simply strongarm the private sector, and it doesn’t have a network of vast state-owned entities it can deploy to pursue its objectives.
Not all the solutions will emerge out of Canberra either, particularly on correspondent banking.
Banks and governments from across the Pacific, Australia and the US will have to coordinate closely.
At the Pacific Banking Forum, Australia announced it would provide $6.3 million to the Pacific countries to help them comply with counter-terrorism and anti-money laundering requirements, as well as developing secure digital identity infrastructure.
Big multilateral organisations will also be critical. The World Bank is expected to soon approve a $US77 million ($119 million) plan to give Pacific Island countries emergency access to US dollars or other major currencies if they’re cut off from major banks.
The World Bank calls this a “creative way of addressing the challenge of de-risking and small scale in Pacific Island countries”, while signalling it’s also working on longer-term solutions.
ANZ’s Shayne Elliot told the forum it was critical for the Pacific to harmonise banking regulations across the whole region to encourage banks to stay.
“From a commercial perspective, our suggestion is that banks will find the Pacific Island region more attractive if its countries can take coordinated steps to reduce both cost and risk,” he said.
“Adopting common laws, implementing consistent regulation, and enhancing regional financial crime efforts will make the Pacific Islands a more attractive place for banks to do business.”
That’s hardly a straightforward task, but governments across the Pacific are not sitting still.
Late last week Pacific economic ministers, including Australian Treasurer Jim Chalmers, met in Suva, with banking high on the agenda.
Mr Chalmers said Australia would work to help the Pacific “lift standards” across the region, while “streamlining and standardising rules for Pacific banks”.
Fijian Finance Minister Biman Prasad told the ABC the Pacific was facing a “critical moment” with banking but indicated he was confident of finding a solution.
“The timing is right. A lot of work is being done there,” he said.
Thousands of businesses and workers across the vast span of the Pacific will depend on their success.