IPSASB SRS 1
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Climate-Related Disclosures
The IPSASB's inaugural Sustainability Reporting Standard, providing principles for disclosing climate-related physical and transition risks, opportunities, governance, strategy, scenario analysis, and GHG emissions (Scopes 1, 2, 3) through a long-term fiscal sustainability lens.
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IPSASB SRS 1 Climate-Related Disclosures is the inaugural Sustainability Reporting Standard issued by the IPSASB in January 2026. It establishes principles for disclosing climate-related physical and transition risks, opportunities, governance, strategy, and greenhouse gas metrics for public sector entities. Effective 1 January 2028.
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Objective, Scope & the Long-Term Fiscal Sustainability Lens (paras. 1–5)
Objective – the IPSASB's inaugural sustainability standard
Provides principles for disclosing climate-related risks and opportunities useful to primary users for ACCOUNTABILITY and DECISION-MAKING. Issued January 2026 as the IPSASB's first-ever Sustainability Reporting Standard (SRS) – a new, AUTHORITATIVE pronouncement category alongside IPSAS Accounting Standards, distinct from the non-authoritative RPG Guidelines covered elsewhere in this library.
Disclosure is required only for risks/opportunities that could REASONABLY be expected to affect an entity's LONG-TERM FISCAL SUSTAINABILITY – importing RPG 1's own definition directly (para. 2).
Scope – physical risk, transition risk, opportunity
Climate-related PHYSICAL risks (acute and chronic) Climate-related TRANSITION risks (policy, legal, technology, market, reputational) Climate-related OPPORTUNITIES
Applies REGARDLESS of whether the entity's related financial statements follow IPSAS or another GAAP (para. 5) – a deliberately broad on-ramp allowing adoption even by jurisdictions that haven't adopted accrual IPSAS at all. Risks/opportunities that could NOT reasonably affect long-term fiscal sustainability fall outside scope entirely (para. 4).
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Definitions – Climate-Related Risks, Opportunities & Resilience (para. 6)
Risk & opportunity vocabulary
Climate-related physical risks
Risks that are event-driven (ACUTE – storms, floods, drought, heatwaves) or from longer-term climatic shifts (CHRONIC – sea level rise, reduced water availability, biodiversity loss).
Climate-related transition risks
Risks arising from efforts to transition to a lower-carbon economy – policy, legal, technological, market, and reputational.
Climate-related opportunities
Potential positive effects of climate change on an entity, often arising from mitigation/adaptation efforts.
Resilience & transition planning
Climate resilience
An entity's capacity to adjust to climate-related changes, developments, or uncertainties – covering both STRATEGIC and OPERATIONAL resilience.
Climate-related transition plan
An aspect of an entity's overall strategy laying out targets, actions, or resources for transitioning toward a lower-carbon economy.
Long-term fiscal sustainability
The ability of an entity to meet service delivery and financial commitments, both now and in the future – imported directly from RPG 1.
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Definitions – Greenhouse Gas Vocabulary: Scopes 1, 2 & 3 (para. 6)
The three-scope emissions framework, built on the GHG Protocol
ScopeDefinition
1DIRECT emissions from sources owned or controlled by the entity
2INDIRECT emissions from purchased/acquired electricity, steam, heating, or cooling – occurring physically at the generation facility
3All OTHER indirect emissions across the entity's VALUE CHAIN – upstream and downstream, spanning all 15 GHG Protocol categories (purchased goods, capital goods, business travel, investments, and more)
Supporting vocabulary
CO2 equivalent
The universal measurement unit expressing the global warming potential of each greenhouse gas relative to one unit of carbon dioxide.
Financed emissions
The portion of an investee's or counterparty's gross emissions attributed to an entity's loans and investments – Scope 3 Category 15.
Internal carbon price
A price an entity uses internally to assess financial implications of emissions – either a notional SHADOW PRICE, or an actual internal TAX/FEE charged to operating units.
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Governance Disclosures (paras. 7–8, AG14–AG15)
The governing body/individual – five required disclosure items
How responsibilities are reflected in mandates, terms of reference, and related policies How the body ensures appropriate SKILLS/COMPETENCIES are available or developed How and how OFTEN it's informed about climate risks/opportunities How it factors climate considerations into strategy, major decisions, and risk management – including any TRADE-OFFS considered How it oversees TARGET-SETTING and monitors progress
Management's role, and a public-sector governance reality check
Disclose whether oversight is DELEGATED to a specific management position/committee, and whether supporting controls/procedures are integrated with other internal functions (para. 8(b)). Public sector governance structures vary enormously across jurisdictions – climate strategy is often driven by a HIGHER level of government rather than a single entity; it's genuinely RARE for oversight to rest with one individual (para. AG14). If NO body/individual has oversight responsibility, that fact itself must be disclosed (para. AG15).
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Strategy – the Five-Part Disclosure Framework (paras. 9–10)
One overarching objective, five required elements
Strategy disclosures let users understand HOW the entity manages climate-related risks and opportunities. Five elements are required, each expanded in its own section below:
The climate-related RISKS AND OPPORTUNITIES themselves (§6) Effects on the entity's OPERATIONAL MODEL AND VALUE CHAIN (§7) Effects on STRATEGY AND DECISION MAKING, including transition plans (§7) Effects on FINANCIAL POSITION, PERFORMANCE, AND CASH FLOWS – current and anticipated (§8) The CLIMATE RESILIENCE of the entity's strategy and operational model (§9)
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Climate-Related Risks & Opportunities – Identification & Time Horizons (paras. 11–12, AG16–AG21)
Four required disclosure items (para. 11)
DESCRIBE each identified risk/opportunity CLASSIFY each risk as physical or transition SPECIFY the time horizon (short/medium/long) over which each could occur EXPLAIN how the entity defines those horizons, linked to its own strategic planning cycles
Identification draws on ALL reasonable and supportable information available without undue cost or effort – past events, current conditions, AND forecasts (para. 12).
Layered public sector strategy-setting
Climate strategies are frequently set at REGIONAL or NATIONAL government level to meet international climate agreement commitments, then IMPLEMENTED by multiple downstream entities that must incorporate higher-level policy into their own strategies (paras. AG16–AG17). Entities may ALSO develop their own strategies addressing service-specific risks – e.g. a police force replacing its vehicle fleet with electric vehicles, or a local government building sea-level-rise infrastructure (para. AG18). Strategy must stay FLEXIBLE given how government changes and policy shifts affect medium/long-term planning (para. AG19).
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Operational Model, Value Chain & Strategy/Decision-Making (paras. 13–14)
Operational model & value chain – where the exposure concentrates
Current AND anticipated effects on the operational model/value chain WHERE those effects concentrate – geography, asset types, entity types, or population groups (para. 13)
"Value chain" is deliberately broad – covering human resources, supply/distribution channels, service delivery, and the financing/geographical/geopolitical/regulatory environment, EXPLICITLY including other public sector entities the entity depends on or is affected by (para. 6, AG12–AG13).
Strategy and decision-making – five required disclosure items
Changes to the operational model/resource allocation – decommissioning carbon-intensive operations, R&D reallocation, acquisitions/divestments Direct mitigation/adaptation efforts (process changes, relocation, workforce adjustment) Indirect efforts, e.g. working with service recipients and supply chains The climate-related TRANSITION PLAN – key assumptions and dependencies How the entity plans to achieve any climate-related TARGETS, plus resourcing and progress against prior-period plans (para. 14)
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Financial Position, Financial Performance & Cash Flows (paras. 15–21, AG22)
Current AND anticipated effects – quantitative where possible
Disclose CURRENT financial effects (this period) and ANTICIPATED effects (short/medium/long term) – including which effects carry a significant risk of a MATERIAL adjustment to asset/liability carrying amounts within the NEXT reporting period (paras. 15–16). Covers investment/disposal plans (even ones not yet contractually committed) and planned funding sources (para. 16(c)–(d)). A single amount OR a range is acceptable (para. 17).
The three-part quantification relief, and the fallback requirement
Quantitative disclosure is EXCUSED if effects aren't separately identifiable, or measurement uncertainty is too high to be useful (para. 19) ALSO excused for ANTICIPATED effects specifically if the entity lacks the skills/capabilities/resources (para. 20) Where excused → still EXPLAIN why, provide QUALITATIVE detail (affected line items/totals), and disclose COMBINED quantitative effects with other risks UNLESS even that isn't useful (para. 21)
Physical risk financial implications: direct asset damage, supply-chain disruption, coastal risk. Transition risk: higher operating costs, asset impairment from new policy. Opportunities: efficiency gains, new technology, adaptation solutions (para. AG22).
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Climate Resilience – Scenario Analysis (paras. 22–23, AG23–AG44)
A scalable approach, not a fixed methodology
Entities use climate-related SCENARIO ANALYSIS to assess resilience, with an approach COMMENSURATE to their own circumstances (para. 22) – determined by weighing (a) the entity's EXPOSURE to climate risk (higher exposure → more sophisticated analysis expected), and (b) the SKILLS/CAPABILITIES/RESOURCES actually available (paras. AG24–AG31). A HIGH-exposure entity WITH adequate resources IS required to use a more advanced quantitative approach; entities may build capability progressively over successive planning cycles (para. AG43).
What must be disclosed, and the leverage option
The assessment's IMPLICATIONS for strategy/operational model, key UNCERTAINTIES, and the entity's CAPACITY to adjust (financial flexibility, ability to redeploy/decommission assets) HOW and WHEN the analysis was performed – scenarios used, whether diverse/aligned-to-latest-international-agreement scenarios were included, key assumptions (policy, macroeconomic, technology), and time horizons (para. 22)
Entities may LEVERAGE scenario analysis performed by ANOTHER public sector entity (e.g. a county-level analysis reused by a town within it) – provided the reused analysis is the most recent available, covers a matching period length, and any intervening significant changes are disclosed (para. AG30-AG31). Full scenario analysis need only be REFRESHED in line with the entity's strategic planning cycle (e.g. every 3–5 years) – but the RESILIENCE ASSESSMENT itself must be updated every reporting period (para. AG44).
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Risk Management (paras. 24–25, AG45)
Identify, assess, prioritize, monitor – and integrate
Inputs/parameters used (data sources, scope of operations covered) Whether/how scenario analysis informs risk IDENTIFICATION How nature/likelihood/magnitude/timing are ASSESSED Whether/how climate risk is PRIORITIZED relative to other risk types How risks are MONITORED, and whether processes changed period-to-period
Opportunities, and integration into the broader risk framework
Also required: the process for identifying/assessing/prioritizing/monitoring OPPORTUNITIES, and the extent to which climate risk processes are INTEGRATED into the entity's overall (non-climate) risk management framework (para. 25). Entities may leverage a NATIONAL RISK REGISTER from a higher government level, supplemented by entity-specific factors (para. AG45).
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Metrics – the Greenhouse Gas Emissions Package (paras. 26–28(a), AG46–AG58)
All three scopes, in CO2 equivalent, with methodology transparency
Disclose ABSOLUTE GROSS emissions for the period, in metric tons CO2 equivalent, separately for Scope 1, 2, and 3
Rebuttable presumption: measure per the GHG Protocol Corporate Accounting and Reporting Standard (2004), unless another method better serves user needs or is jurisdictionally required – in which case disclose the alternative methodology, WHY, and how it meets the disclosure objective (paras. 28(a)(ii), AG51–AG54). Disaggregate Scope 1/2 between the CONSOLIDATED accounting group and OTHER investees (associates, joint ventures, unconsolidated controlled entities) (para. 28(a)(iv)).
Scope 2 – location-based, always
Scope 2 emissions are disclosed using a LOCATION-BASED approach (average grid emissions intensity) – MANDATORY – plus information about any CONTRACTUAL INSTRUMENTS (energy attribute certificates, market-based purchase agreements) if they inform users' understanding, but only where such instruments actually exist (paras. 28(a)(v), AG57–AG58).
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Other Metric Categories & Climate-Related Targets (paras. 28(b)–36, AG89–AG94)
Six further metric categories (para. 28(b)–(g))
TRANSITION risk exposure – amount/% of activities/assets vulnerable PHYSICAL risk exposure – same measure OPPORTUNITY alignment – amount/% of activities/assets aligned CAPITAL DEPLOYMENT toward climate risks/opportunities INTERNAL CARBON PRICE – whether/how used, how determined, the actual price per ton REMUNERATION – if climate factors feed into key management personnel pay, describe how and disclose the %
Entities may ALSO voluntarily disclose PEER METRICS relevant to similar government functions, drawing on sources like SASB or GRI Sector Standards (para. 31).
Climate-related targets – eight required characteristics per target
The METRIC used to set it, and its OBJECTIVE (mitigation, adaptation, science-based alignment) SCOPE (entity-wide or partial), TIME PERIOD, and BASE PERIOD MILESTONES/interim targets; whether ABSOLUTE or INTENSITY-based; and how the latest international climate agreement informed it (para. 32)
ALSO required: third-party validation status, review processes, progress-monitoring metrics, and any revisions with reasons (para. 33) – plus actual performance and trend analysis against each target (para. 34). GHG-specific targets additionally require: gases covered, which scopes, GROSS vs. NET framing (a net target REQUIRES disclosing the underlying gross target too – it cannot obscure it), and whether a sectoral decarbonization approach was used (para. 35).
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Scope 3 Emissions – the Data-Prioritization Framework & Carbon Credits (paras. 28(a)(vi), 35(e), AG65–AG94)
Four prioritization characteristics, in no fixed order
DIRECT measurement over estimation, wherever practical PRIMARY data (from the entity's own value chain) over SECONDARY data (published databases, industry averages) TIMELY data faithfully representing the jurisdiction/technology involved VERIFIED data, wherever obtainable without undue cost
In practice, Scope 3 measurement will rely heavily on ESTIMATION – combining ACTIVITY DATA (e.g. distance traveled) with EMISSION FACTORS converting it to GHG output (paras. AG69–AG71). Management must apply judgment weighing trade-offs – e.g. recent-but-less-detailed data vs. older-but-more-representative data (para. AG68). In genuinely RARE impracticable cases, the entity discloses instead how it's MANAGING its Scope 3 emissions (para. AG82).
Financed emissions, and carbon credit disclosure
Entities engaged in FINANCIAL activities (central banks, public pension funds, housing finance agencies) measure FINANCED EMISSIONS as a credit/market/reputational risk indicator, applying the same disclosure requirements as ordinary Scope 3 reporting (paras. AG83–AG84). For any PLANNED use of carbon credits toward a net GHG target: disclose the extent of reliance, the verifying third-party scheme, the credit TYPE (nature-based vs. technological; reduction vs. removal), and any other factors bearing on credibility (e.g. permanence assumptions) (para. 35(e)).
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General Requirements – Fair Presentation & Materiality (Appendix B, paras. B1–B15)
Fair presentation – the same qualitative characteristics seen throughout this library
Requires a COMPLETE, NEUTRAL, and error-free depiction of climate-related risks/opportunities (para. B5), presented to be relevant/understandable/timely/comparable/verifiable (Appendix C echoes the Conceptual Framework's own six characteristics). Applying the Standard, WITH additional information disclosed where necessary, is PRESUMED to achieve fair presentation (para. B7).
Materiality – a genuinely distinctive threshold
Information is MATERIAL if omitting, misstating, or obscuring it could reasonably influence accountability discharge OR primary users' decisions
A close structural parallel to ordinary IPSAS materiality – but filtered specifically through the LONG-TERM FISCAL SUSTAINABILITY lens established in §1 (paras. B8–B9). "Primary users" = existing/potential SERVICE RECIPIENTS and RESOURCE PROVIDERS (and their representatives) – identical to the Conceptual Framework's own primary user definition (para. B1).
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General Requirements – Location, Timing, Comparatives & the Compliance Statement (paras. B11–B35)
Reporting entity, connected information, and flexible location
Climate disclosures cover the SAME reporting entity as the related financial statements (para. B11), with data/assumptions kept CONSISTENT between the two wherever possible (para. B14). Location is flexible – often within a "management commentary" or similarly-named report – but must be CLEARLY IDENTIFIABLE, not obscured by other content, and can incorporate other reports by cross-reference under specific conditions (paras. B23–B25).
Timing, comparatives, and the same binary compliance rule as IPSAS
Reported at the SAME time and for the SAME period as the related financial statements – normally 12 months (paras. B26–B27) UPDATE disclosures for material post-period-end information discovered before authorization for issue (paras. B29–B30) COMPARATIVE information required for all disclosed amounts; encouraged for narrative content too (para. B32)
An entity shall NOT describe its climate-related disclosures as complying with this Standard UNLESS they comply with ALL its requirements – the exact same all-or-nothing rule seen throughout the accrual IPSAS body of literature (para. B34)
A narrow exception: if law/regulation PROHIBITS disclosing specific information, the entity is relieved from that item WITHOUT losing its ability to assert overall compliance (para. B35).
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Judgments, Measurement Uncertainty & Errors (paras. B36–B45)
Judgments (excluding estimates) and measurement uncertainty
Disclose the SIGNIFICANT judgments made preparing the disclosures – e.g. identifying risks/opportunities, choosing guidance sources, determining materiality, and assessing whether an event triggers value-chain reassessment (paras. B36–B37). SEPARATELY, disclose the most significant UNCERTAINTIES affecting reported amounts – sources (future-event dependence, technique limitations, data availability), and the assumptions/approximations/judgments behind each estimate (paras. B38–B39). Useful additional detail includes sensitivity, expected resolution timing, and a reasonable outcome range (para. B42).
Prior period errors – restate, unless impracticable
Correct MATERIAL prior-period errors by restating comparative amounts – UNLESS impracticable
Errors are omissions/misstatements from failing to use, or misusing, RELIABLE information that was available and reasonably expected to have been considered at the time (paras. B43–B44) – the same error definition used throughout IPSAS 3.
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Effective Date & Transition (paras. 37–43)
A single global effective date, with genuine phase-in relief
Periods beginning on/after January 1, 2028 – earlier application permitted, with disclosure if elected (para. 37)
Notably, an entity may elect an EARLIER adoption date WITHOUT needing the transition relief at all (para. 42) – a genuine option distinct from simply adopting early with relief.
Three concrete transition reliefs
NO comparative-period disclosures required in the FIRST year of application (para. 39) Climate disclosures may be published UP TO NINE MONTHS after the related financial statements, in that first year only (para. 40) SCOPE 3 emissions disclosure is NOT required for the first THREE YEARS – and once used, this relief may continue into subsequent periods' COMPARATIVE presentation too (paras. 41, 43)
This three-part relief package directly addresses the genuine capacity-building challenge flagged throughout the Application Guidance – many public sector entities, especially smaller/less-resourced ones, will need real time to build Scope 3 measurement capability (§9, §13).
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Public Sector Adaptations – What's Genuinely Different From Corporate Climate Reporting
Governance and funding realities baked into the Standard itself
The MATERIALITY lens is anchored to LONG-TERM FISCAL SUSTAINABILITY (RPG 1's own concept), not a generic "enterprise value" framing common in corporate sustainability standards (§1, §14) GOVERNANCE guidance explicitly acknowledges that oversight is rarely concentrated in one body – often distributed across LEVELS of government (§4) STRATEGY guidance acknowledges climate policy is frequently SET nationally/regionally and IMPLEMENTED locally, with statutorily FIXED mandates limiting an entity's own ability to change activities (§6, para. AG2) FUNDING disclosure explicitly recognizes taxpayers, intergovernmental transfers, and bond markets as the dominant resource sources – rather than shareholders or corporate credit markets (para. AG20)
Value chain, scenario analysis leverage, and a phased development roadmap
The value chain definition EXPLICITLY includes other public sector entities as dependencies (§7) – a genuinely distinctive inclusion reflecting how interconnected government funding/delivery chains are. Entities are explicitly permitted to LEVERAGE scenario analysis and risk registers developed by HIGHER levels of government (§9, §10) – a practical concession to resource-constrained smaller entities. And this Standard is explicitly PHASE 1 of a two-phase project: it covers only an entity's OWN OPERATIONS; a Phase 2 Standard addressing CLIMATE-RELATED PUBLIC POLICY PROGRAMS and their outcomes is targeted for completion by the end of 2026 – a scope split with no real analogue in corporate sustainability standard-setting.
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Relationship to IFRS S2
Deliberately aligned by design, adapted for public sector governance and materiality
IPSASB SRS 1 is explicitly built to align closely with IFRS S2, Climate-related Disclosures (issued by the ISSB) – a deliberate interoperability choice so entities operating across both private and public sector reporting ecosystems face minimal duplication.
TopicDifference
Materiality anchorSRS 1 filters through LONG-TERM FISCAL SUSTAINABILITY (RPG 1's concept, §1, §14); IFRS S2 filters through enterprise value / investor decision-usefulness
Primary usersSRS 1: service recipients and resource providers (taxpayers, grant funders, bondholders). IFRS S2: existing/potential investors, lenders, and other creditors
Governance guidanceSRS 1 explicitly accounts for MULTI-LEVEL government oversight structures and the frequent absence of a single accountable body (§4); IFRS S2 assumes a single governing body/board
Strategy-settingSRS 1 acknowledges climate strategy is often set at a HIGHER government level and merely implemented locally (§6); IFRS S2 assumes the reporting entity sets its own strategy
Value chainSRS 1 explicitly includes OTHER PUBLIC SECTOR ENTITIES as value chain dependencies (§7); IFRS S2's value chain concept is oriented toward commercial supply chains
Transition reliefSRS 1's three-part relief package (no comparatives, 9-month late filing, 3-year Scope 3 deferral) closely mirrors IFRS S2's own transition reliefs (§17)
Scope of coverageSRS 1 is explicitly Phase 1 of a two-phase project, covering only an entity's OWN operations – a public-policy-program Phase 2 is still forthcoming (§18); IFRS S2 has no equivalent phased scope split
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Statement / Process Mapping
Decision map
- Could a climate-related risk/opportunity REASONABLY affect long-term fiscal sustainability? If not → outside scope entirely (§1)
- Disclose GOVERNANCE – who oversees climate matters, how often informed, how factored into decisions (§4)
- Disclose STRATEGY across all five elements – risks/opportunities, value chain effects, decision-making effects, financial effects, resilience (§5–§9)
- Run a climate-related SCENARIO ANALYSIS commensurate with exposure and capability – leverage higher-government-level analysis where available (§9)
- Disclose RISK MANAGEMENT processes – identification, assessment, prioritization, monitoring, integration (§10)
- Disclose GHG emissions (Scope 1/2/3, location-based Scope 2), plus the six other metric categories and any climate-related TARGETS (§11–§12)
- Apply the SCOPE 3 data-prioritization framework – direct over estimated, primary over secondary, timely, verified (§13)
- Apply the general requirements – fair presentation, materiality, location, timing, comparatives, and the binary compliance statement (§14–§16)
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Related Standards – Cross-Reference Map
How IPSASB SRS 1 connects across the IPSASB body of literature
DocumentNature of the connection
Conceptual FrameworkSource of the primary user definition and qualitative characteristics applied throughout (§2, §14)
RPG 1Source of the LONG-TERM FISCAL SUSTAINABILITY definition anchoring this Standard's entire materiality lens (§1, §2) – SRS 1's own implementation guidance explicitly cross-references RPG 1's climate/sustainability program guidance
RPG 3Conceptual parallel – both are non-financial-statement GPFR guidance addressing entity performance beyond the accrual accounting model
IPSAS 1Governs the related financial statements that climate disclosures must stay CONSISTENT with (§15)
IPSAS 3Conceptual parallel for the error-correction and estimate-disclosure mechanics this Standard's own §16 mirrors
IPSAS 19 / 21 / 26 / 45Physical/transition climate risk can trigger impairment indicators or provisions under these Standards – the financial-statement-side consequence of the risks disclosed here
IPSAS 33Conceptual parallel – both provide transitional relief periods for newly-adopting entities (§17)
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Quick-Reference Glossary
Climate-related physical risks
Event-driven (acute) or longer-term (chronic) risks arising from climate change.
Climate-related transition risks
Risks from efforts to transition to a lower-carbon economy – policy, legal, technology, market, reputational.
Climate resilience
An entity's capacity to adjust to climate-related changes, developments, or uncertainties.
Scope 1 / 2 / 3 emissions
Direct emissions / indirect energy-purchase emissions / all other value chain emissions.
Long-term fiscal sustainability
The ability of an entity to meet service delivery and financial commitments, both now and in the future.
Value chain
The full range of interactions/resources/relationships an entity relies on, including other public sector entities.
Reporting document key
GPFR General Purpose Financial Report
GPFS General Purpose Financial Statements