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Federal Reserve Bank of Dallas HELEN E. HOLCOMB DALLAS, TEXAS 75265-5906 F I R S T V I C E P R E S I D E N T AN D CH IE F O PE R A TIN G O FFICER December 15, 1997 Notice 97-117 TO: The Chief Operating Officer of each financial institution and others concerned in the Eleventh Federal Reserve District SUBJECT Proposed and Final Amendments to Regulation D (Reserve Requirements of Depository Institutions) DETAILS The Board of Governors of the Federal Reserve System has requested public com ment on a proposal to amend Regulation D (Reserve Requirements o f Depository Institutions) to move from the current system of contemporaneous reserve maintenance for institutions that are weekly reporters to a system under which reserves are maintained on a lagged basis by such institutions. Under a lagged reserve maintenance system, the reserve maintenance period for a weekly reporter will begin 30 days after the beginning of a reserve computation period. Under the current system, the reserve maintenance period begins only two days after the beginning of the computation period. The Board must receive comments by January 12, 1998. Please address comments to William W. Wiles, Secretary, Board of Governors of the Federal Reserve System, 20th Street and Constitution Avenue, N.W., Washington, DC 20551. All comments should refer to Docket No. R-0988. Also, the Board has amended Regulation D to allow U.S. branches and agencies of foreign banks and Edge and Agreement corporations to choose whether to aggregate reserve balances on a nationwide basis with a single pass-through correspondent or to continue to main tain reserve balances on a same-state/same-District basis as they do today. The amendments also update and clarify the pass-through rules in Regulation D for all institutions. These amendments will facilitate interstate banking and branching and eliminate certain restrictions applicable to pass-through arrangements. The amendments become effective January 1, 1998. For additional copies, bankers and others are encouraged to use one of the following toll-free numbers in contacting the Federal Reserve Bank of Dallas: Dallas Office (800) 333-4460; El Paso Branch Intrastate (800) 592-1631, Interstate (800) 351-1012; Houston Branch Intrastate (800) 392-4162, Interstate (800) 221-0363; San Antonio Branch Intrastate (800) 292-5810. This publication was digitized and made available by the Federal Reserve Bank of Dallas' Historical Library (FedHistory@dal.frb.org) ATTACHMENTS A copy of the Board’s notices as they appear on pages 60671-72, Vol. 62, No. 218 of the Federal Register dated November 12, 1997, and pages 59775-79, Vol. 62, No. 214 of the Federal Register dated November 5, 1997, is attached. MORE INFORMATION For more information regarding reserve requirements, please contact this Bank’s Reserve and Risk Management Division at (214) 922-5646. Depository institutions in the El Paso territory should contact the Reserve Maintenance Division in the El Paso Office at (915) 521-8213. Depository institutions in the Houston territory should contact the Reserve Mainte nance Division in the Houston Office at (713) 652-1538. Depository institutions in the San Antonio territory should contact the Reserve Maintenance Division in the San Antonio Office at (210) 978-1426. For additional copies of this Bank’s notice, contact the Public Affairs Department at (214) 922-5254. Sincerely, 60671 Proposed Rules F ederal Register Vol. 62, No. 218 W ed n esd ay , N ovem ber 12, 1997 FEDERAL RESERVE SYSTEM 12CFR Parts 204 [Regulation D; Docket No. R-0988] Reserve Requirements of Depository Institutions Board of Governors of the Federal Reserve System. ACTION: Proposed rule. AGENCY: The Board is proposing amendments to Regulation D, Reserve Requirements of Depository Institutions, to move from the current system of contemporaneous reserve maintenance for institutions that are weekly reporters to a system under which reserves are maintained on a lagged basis by such institutions. Under a lagged reserve maintenance system, the reserve maintenance period for a weekly reporter will begin 30 days after the beginning of a reserve computation period. Under the current system, the reserve maintenance period begins only two days after the beginning of the computation period. DATES: Comments must be submitted on or before January 12,1998. ADDRESSES: Comments, which should refer to Docket No. R-0988, may be mailed to Mr. William W. Wiles, Secretary, Board of Governors of the Federal Reserve System, 20th Street and Constitution Avenue, N.W., Washington, D.C. 20551. Comments addressed to Mr. Wiles also may be delivered to the Board’s mail room between 8:45 a.m. and 5:15 p.m. and to the security control room outside of those hours. Both the mail room and the security control room are accessible from the courtyard entrance on 20th Street between Constitution Avenue and C Street, N.W. Comments may be inspected in Room MP-500 between 9:00 a.m. and 5:00 p.m. SUMMARY: FOR FURTHER INFORMATION CONTACT: William Whitesell, Section Chief, Money and Reserves Projections Section, Division of Monetary Affairs (202/452-2967); Oliver Ireland, Associate General Counsel, (202/4523625) or Lawranne Stewart, Senior Attorney (202/452-3513), Legal Division. For the hearing impaired only, contact Diane Jenkins, Telecommunications Device for the Deaf (TDD) (202/452-3544), Board of Governors of the Federal Reserve System, 20th and C Streets, N.W., Washington, D.C. 20551. SUPPLEMENTARY INFORMATION: In order to satisfy the reserve requirements imposed under Regulation D (Reserve Requirements of Depository Institutions), depository institutions that file detailed deposit reports with the Federal Reserve once a week (“weekly reporters”) are required to maintain reserves against their deposits on a virtually contemporaneous basis.1 Weekly reporters are required to maintain average reserve balances over a 14-day reserve maintenance period that begins only two days after the beginning of the 14-day computation period.2 The requirement for contemporaneous reserve maintenance was implemented in 1984 to enhance the conduct of monetary policy by strengthening the ability of the Board to control M l, the narrowest measure of the money supply, through operations directed at the supply of reserves.3 Since that time, however, the Federal Reserve’s operating procedures have changed and it no longer maintains target ranges for M l. Additionally, the use of contemporaneous reserve maintenance requires depositories and the Federal Reserve to estimate and project the quantity of reserves that will be needed to meet reserve requirements 1W eekly reporters include dom estic depository institutions w ith total reservable liabilities greater than th e exem ption am ount provided by the zeroreserve tranche, currently $4.4 m illion, and total deposits at or above the deposit cut-off established for institutions th at are not fully exem pt from reserve requirem ents, currently $75 m illion. U.S. branches and agencies of foreign banks and Edge and Agreement corporations, regardless of their size, m ust report weekly. Institutions that are not weekly reporters file deposit reports on either a quarterly or annual basis, depending on the size of their total deposits and their total reservable liabilities. This proposal will have no effect on those institutions. 2 In the past, the threshold deposit level for weekly reporters has b een indexed to th e growth of total deposits and revised annually. As part of the Board’s m ost recent review of the deposit reporting forms, however, the threshold deposit level for weekly reporting of deposits w as raised to $75 m illion, effective as of the reporting w eek ending Septem ber 15, 1997. 3 See 47 FR 44705 (October 12,1982). during the current maintenance period. These estimates have become increasingly difficult to formulate with any precision on a timely basis, in part because of the implementation by many depository institutions of retail sweep programs. Such programs have lowered required reserves for institutions that have implemented them and have increased uncertainties regarding the reserve balances depository institutions must hold at the Reserve Banks. For example, for some large institutions, required reserves are sometimes above and sometimes below their holdings of vault cash, with the result that it is difficult to project reliably the extent to which reserves in excess of applied vault cash will be required by these institutions. The Board therefore is requesting comment on a proposal to amend Regulation D to return to a system of lagged reserve requirements. Under the proposal, a lag of thirty days (two full maintenance periods) would be introduced between the beginning of a reserve computation period and the beginning of the maintenance period during which reserves for that computation period must be maintained. The reserve maintenance period therefore would not begin until seventeen days after the end of the computation period. The proposal also provides for a two-period lag in the computation of the vault cash to be applied to satisfy reserve requirements.4 Providing a two-period lag for both required reserves and applied vault cash will allow the Federal Reserve, as well as the depository institutions, to calculate the level of required reserve balances before the beginning of the maintenance period. The increased lag also should reduce the level of resources that depository institutions and the Federal Reserve currently must devote to estimating and projecting required reserve balances. The Board’s proposal will not affect the provisions of Regulation D concerning the carryover of excess or deficiencies in a depository institution’s reserve account. The Board proposes to implement the shift to a lagged reserve requirement in July 1998. The Board believes that the transition to the new system could be 4 A pplied vault cash for an individual institution is equal to the lesser of total v ault cash or required reserves. 60672 Federal Register / Vol. 62, No. 218 / Wednesday, November 12, 1997 / Proposed Rules made most easily after completion of the changeover of software used by the Federal Reserve to process most data flows, currently projected for March 1998, and prior to the annual deposit panel shifts that will take place in September 1998. Initial Regulatory Flexibility Analysis regulatory burden for those small institutions that are affected. List of Subjects in 12 CFR Part 204 Banks, banking, Federal Reserve System, Reporting and recordkeeping requirements. For the reasons set out in the The Regulatory Flexibility Act (5 preamble, the Board proposes to amend U.S.C. 601-612) requires an agency to part 204 of chapter II of title 12 of the publish an initial regulatory flexibility Code of Federal Regulations as follows: analysis with any notice of proposed rulemaking. An initial regulatory PART 204— RESERVE flexibility analysis must include: (1) A REQUIREMENTS OF DEPOSITORY description of the reasons why action by INSTITUTIONS (REGULATION D) the agency is being considered; (2) a statement of the objectives of, and legal 1. The authority citation for part 204 basis for, the proposed rule; (3) a continues to read as follows: description of and, where feasible, an Authority: 12 U.S.C. 248(a), 248(c), 371a, estimate of the number of small entities 461, 601, 611, a n d 3105. to which the proposed rule will apply; (4) a description of the projected 2. In § 204.3, paragraph (c) is revised reporting, recordkeeping, and other to read as follows: compliance requirements of the proposed rule; and (5) an identification, §204.3 Computation and maintenance. to the extent practicable, of all relevant * * * * * Federal rules that may duplicate, overlap, or conflict with the proposed (c) Computation o f required reserves rules. 5 U.S.C. 603(b). for institutions that report on a weekly As discussed above, the Board is basis. (1) Required reserves are considering this action to improve the computed on the basis of daily average ability of the Federal Reserve to estimate balances of deposits and Eurocurrency accurately the need for reserves on a liabilities during a 14-day period ending timely basis, with the objective of every second Monday (the ensuring greater effectiveness of the “computation period”). Reserve Federal Reserve’s open market requirements are computed by applying operations. Under section 19 of the the ratios prescribed in § 204.9 to the Federal Reserve Act, the Board is classes of deposits and Eurocurrency authorized to promulgate rules concerning the maintenance of reserves. liabilities of the institution. In determining the reserve balance that is 12 U.S.C. 461(c). The Board does not required to be maintained with the believe that there are any Federal rules Federal Reserve, the average daily vault that duplicate, overlap, or conflict with cash held during the computation the proposed rule. period is deducted from the amount of The proposal will affect only the institution’s required reserves. institutions that are weekly deposit reporters, which generally include (2) The reserve balance that is depository institutions that have total required to be maintained with the deposits of $75 million or greater, as Federal Reserve shall be maintained only these institutions currently are during a 14-day period (the required to maintain reserves on a “maintenance period”) that begins on contemporaneous basis.5 The proposed the third Thursday following the end of amendments will not increase reporting a given computation period. or recordkeeping requirements * * * * * associated with Regulation D for By o rd e r o f th e B oard o f G overnors of the institutions that are weekly reporters, F ed eral R eserve System , N ovem ber 6 ,1 9 9 7 . but will significantly simplify W illiam W. W iles, compliance with the rule for these institutions. The proposal therefore will Secretary of the Board. not increase regulatory burden on small [FR Doc. 97-2 9 7 6 1 F iled 1 1 -1 0 -9 7 ; 8:45 am] institutions generally and will reduce BILLING CODE 621 0 -0 1 -P 5 W hile w eekly reporters that are Edge or Agreement corporations or U.S. branches or agencies of a foreign bank m ay have deposits of less than $75 m illion, the deposits of these entities represent only a p ortion of the total deposits of the larger organizations to w hich they belong. Rules and Regulations Federal Register Vol. 62, No. 214 W ed n esd ay , N ovem ber 5, 1997 single debtor-creditor relationship with each chartered entity, thereby providing an effective means for Reserve Banks to carry out their risk management responsibilities, and will improve the efficiency of account management for depository institutions.1 In August 1997, the Board proposed amendments to its Regulation D (12 CFR Part 204) that would allow U.S. branches and agencies of the same foreign bank and Edge and Agreement corporations 2 to hold all of FEDERAL RESERVE SYSTEM their required reserve balances in a single account held by a pass-through 12CFR Part 204 correspondent or to continue to have [Regulation D; Docket No. R -0 98 0 ] separate accounts on a same-state/sameDistrict basis as they do today (62 FR Reserve Requirements of Depository 42708, August 8, 1997). The proposal Institutions also would have allowed foreign bank offices and Edge corporations to choose AGENCY: Board of Governors of the whether to aggregate their deposit Federal Reserve System. reports on a nationwide basis or to ACTION: Final rule. continue to report on a same-state/sameDistrict basis. SUMMARY: The Board is amending its To permit this choice for foreign bank Regulation D, Reserve Requirements of offices and Edge corporations, the Board Depository Institutions, to allow U.S. proposed changes to the pass-through branches and agencies of foreign banks rules in Regulation D, which would and Edge and Agreement corporations liberalize those rules for all domestic to choose whether to aggregate reserve depository institutions as well as for balances on a nationwide basis with a single pass-through correspondent or to foreign bank offices and Edge corporations. The Board also requested continue to maintain reserve balances comment on issues relating to where all on a same-state/same-District basis as institutions should file their reports of they do today. The amendments will also update and clarify the pass-through deposit, as well as other reports. rules in Regulation D for all institutions. The Board is adopting a revised These amendments will facilitate version of its proposal. Under the final interstate banking and branching and rule, foreign bank offices and Edge eliminate certain restrictions applicable corporations will have a choice whether to pass-through arrangements. to aggregate required reserve balances on a nationwide basis through a pass EFFECTIVE DATE: January 1, 1998. through arrangement or to maintain FOR FURTHER INFORMATION CONTACT: separate same-state/same-District Oliver Ireland, Associate General accounts. All institutions, however, Counsel, (202/452-3625) or Stephanie including foreign bank offices and Edge Martin, Senior Attorney (202/452corporations, will continue to file 3198), Legal Division. For the hearing reports of deposits and other reports impaired only, contact Diane Jenkins, Telecommunications Device for the Deaf with the Federal Reserve Bank in whose District they are located. (TDD) (202/452-3544), Board of Governors of the Federal Reserve 1To determ ine the Federal Reserve Bank at w hich System, 20th and C Streets, N.W., a bank w ith interstate branches w ill hold an Washington, D.C. 20551. account, the Board adopted rules earlier this year to define a dom estic depository in stitu tio n ’s SUPPLEMENTARY INFORMATION: To location for purposes of Federal Reserve facilitate interstate banking and m em bership and reserve account m aintenance (62 branching, the Federal Reserve Banks FR 34613, June 27,1997). will begin to implement a new account 2 Edge corporations are organized u nd er section structure in January 1998 that will 25A of the Federal Reserve Act (12 U.S.C. 611-631), and A greement corporations have an agreem ent or provide a single Federal Reserve undertaking w ith the Board u nder section 25 of the account for each domestic depository Federal Reserve Act (12 U.S.C. 601-604a). For institution. This structure will enable purposes of this docket, the term “Edge the Federal Reserve Banks to establish a corporation” includes Agreement corporations. General Comments The Board received twelve comments on the proposed amendments to Regulation D, five from Federal Reserve Banks, three from U.S. offices of foreign banks, two from trade associations, one from a commercial bank parent of an Edge corporation, and one from a state banking supervisor. The commenters overwhelmingly supported allowing foreign bank offices and Edge corporations the option of aggregating their required reserve balances nationally or locally. The foreign bank commenters, the Edge corporation parent, and a foreign bank trade association noted that retaining the option is important to foreign banks because some offices operate independently and are not equipped to consolidate reserve balances, while other foreign bank families could operate more efficiently if reserve balances were maintained at a central location. A state banking supervisor expressed concern that the aggregation of a foreign bank’s reserve balances may appear to conflict with the separate legal status of each branch of the foreign bank and should not be allowed to affect the responsibilities of each branch to comply with any requirements under state law. The Board believes that the treatment of the reserve balances of a foreign bank family under Regulation D does not change in any way the responsibility of any individual foreign bank branch or agency to continue to meet any relevant state law requirements imposed by a state regulator, such as asset pledge, maintenance, or reserve requirements. Section-By-Section Analysis Section 204.3(a) Computation and Maintenance of Required Reserves Maintenance o f required reserves. Section 204.3(a) of Regulation D requires every depository institution, U.S. branch or agency of a foreign bank, and Edge or Agreement Corporation to maintain reserves against its deposits and Eurocurrency liabilities and file reports in accordance with the ratios and procedures described in the regulation. The Board proposed no amendments to this provision but, as discussed below, has removed the reference to filing reports and has consolidated all reporting provisions in a single paragraph. 59776 Federal Register / Vol. 62, No. 214 / Wednesday, November 5, 1997 / Rules and Regulations Reporting. Section 204.3(a) also requires foreign bank offices and Edge corporations located in the same state and same Federal Reserve District to file a single aggregated report of deposits with the Federal Reserve Bank in whose District the offices are located. The Board solicited comment on an amendment to this section to allow a foreign bank or Edge corporation family to submit an aggregated report of deposits for all U.S. offices, in the event that those foreign banks or Edge corporations chose to aggregate required reserve balances in a single account held by a pass-through correspondent. The Board also requested comment on whether reporting changes are necessary for all depository institutions that hold their reserve balances with pass-through correspondents. Regulation D (former § 204.3(i)(2), now relocated to § 204.3(a)(2)) requires a depository institution to file its report of deposits with the Reserve Bank in whose District the institution is located, regardless of whether the institution maintains reserve balances in its own account or with a pass-through correspondent. The Reserve Bank notifies the reporting institution of its reserve requirements and also notifies the pass-through correspondent, if one exists. Each respondent is responsible for reporting; the pass-through correspondent is not responsible for reporting errors made by the respondent, but it is responsible for maintaining the required reserve balances in accordance with the reports. Under the proposed pass-through rules, a depository institution located in one Federal Reserve District could hold reserve balances with a pass-through correspondent whose Federal Reserve account is located in another District. (The Board has adopted this proposal, as discussed below.) In this situation, the Board noted that it may be appropriate for that depository institution’s deposit reports to “follow the money,” that is, for the depository institution to send its deposit report to the Reserve Bank that holds the account, rather than the Reserve Bank of the institution’s District. In addition, the Board requested comment on whether it is appropriate for all reports of all institutions (depository institutions as well as foreign bank offices and Edge corporations), including both supervisory and monetary reports, to go to the Reserve Bank that holds the account where that institution’s reserve balances are held. Nine of the eleven commenters discussed reporting issues. Five commenters pointed out practical problems associated with requiring reports to “follow the money” rather than be filed with the institution’s local Reserve Bank. A trade association for foreign banks stated that, for foreign bank offices that maintained reserve balances with a single pass-through correspondent account, the effect of requiring all reports to go to the Reserve Bank that holds the account is not clear. The commenter was concerned, for example, about how the Reserve Bank receiving the reports would coordinate with the Reserve Bank that supervises the local office, as well as the effect the unified reporting system would have on coordinated supervision between federal and state regulators. A foreign bank commenter stated that consolidation of all reports could result in a lack of understanding of the foreign bank office’s condition by its supervising Reserve Bank and de facto double reporting requirements for the office. A Reserve Bank noted that allowing aggregate reporting for these foreign bank offices would make it difficult to verify reports on a timely basis, would require close coordination between Reserve Banks, and could affect the accuracy of data on the various separately chartered offices. One bank trade association, one Edge corporation parent, and two Reserve Banks supported the proposal to allow foreign bank offices and Edge corporations to file a single aggregated report of deposits, although one of those Reserve Banks argued against requiring domestic pass-through respondents to file deposit reports with their out-of-District correspondent’s Reserve Bank. The commenters also identified problems with the “follow the money” approach for domestic institutions that hold reserve balances with a pass through correspondent. For example, one commenter stated that, although requiring all reports to go to the Federal Reserve Bank that holds the correspondent’s account could provide an efficient means of administering reserve requirements, it would also require Reserve Banks to dedicate resources to analyzing nonlocal banks’ structure, operations, and financial statements. The commenter stated that the alternative of “split reporting” (sending deposit reports to the accountholding Reserve Bank and all other reports to the local Reserve Bank) could lead to confusion and inefficiencies and that another alternative, filing all reports with multiple Reserve Banks, would place additional burden on depository institutions. Two other commenters stated that another reason the reporting location should not be based on the location of a pass-through correspondent is because pass-through arrangements can change frequently. Although the Board believes that requiring reports to follow the money might provide an efficient means of administering reserve requirements, any potential efficiencies appear to be outweighed by the practical difficulties involved when deposit (or all) reports are submitted to a Reserve Bank other than the reporting institution’s local Reserve Bank. If the Reserve Bank in whose District the institution is located is responsible for supervising the institution, submitting supervisory reports to another Reserve Bank could affect the depth and timeliness of the supervising Reserve Bank’s knowledge of the institution’s condition. Split reporting would lead to inefficiencies in other areas for both the institution and the Federal Reserve Banks. The reporting institution would have to deal with more than one Reserve Bank on reporting and data editing issues. For the Federal Reserve, each Reserve Bank collecting data from a particular institution would have to become knowledgeable about that institution’s structure, operations, and balance sheet in order to perform effective data editing and analysis. In light of these problems, the Board is retaining the current reporting requirements for domestic institutions as well as foreign bank offices and Edge corporations. The Board has consolidated the reporting provisions in new § 204.3(a)(2). All reporting institutions will file deposit and other reports with the Federal Reserve Bank in whose District the institution is located. Foreign bank and Edge corporation offices operating in the same state and same District will file an aggregated report as they do today. The reporting rule does not affect an institution’s ability to pass its reserve balances through a correspondent, which may be located in the same or another District. For example, a foreign bank family will be able to consolidate required reserve balances with a single pass-through correspondent while still reporting deposits on a same-state sameDistrict basis. One commenter asked the Board to clarify that, in the case of Edge corporations, the reporting aggregation applies to the offices of a single Edge corporation and not the offices of all Edge corporations owned by a single parent that operate in the same state and same District. The provisions of § 204.3(a)(2) on aggregated reporting apply to all offices of a single Edge corporation operating in the same state and same District, not to all offices owned by a common parent. Federal Register / Vol. 62, No. 214 / Wednesday, November 5, 1997 / Rules and Regulations 59777 Low Reserve Tranche and Exemption determine which Reserve Bank holds Amounts. Regulation D provides that the account. The Board also proposed to foreign bank and Edge corporation remove the sentence in § 204.3(b)(1) that families share one low reserve tranche stated that reserves that were held on a and exemption amount among all pass-through basis were considered to related offices.3 The pre-amendment be a balance maintained with a Reserve Regulation D set out separate provisions Bank. This sentence could be read to (§ 204.3(a)(1) and (a)(2)) for foreign conflict with the Board’s proposed banks and Edge corporations covering revisions to the pass-through rules allocation of the low reserve tranche clarifying that the balances held in the and contained a separate provision account of the pass-through (§ 204.3(a)(3)) on allocation of the correspondent were the property of the reserve exemption, which applied to correspondent. The Board received one comment on depository institutions as well as foreign bank offices and Edge corporations. The these provisions, supporting the proposal. The Board has adopted the Board proposed a new § 204.3(a)(2) to proposed amendments and has also combine the existing provisions on revised the language in § 204.3(b)(1) to allocation of the low reserve tranche clarify that only non-member and the reserve exemption among institutions may hold reserves with a branches of depository institutions, pass-through correspondent.5 foreign bank offices, and Edge corporations. Section 204.3(i) Pass-Through Rules The Board received one comment on Eligible Pass-Through this proposed amendment, in favor of the revision. The Board has adopted the Correspondents. Former § 204.3(i)(l) stated that foreign bank offices and Edge amendment as proposed. Under the corporations could pass their reserve amendment, a depository institution balances through an account of another and its branches, foreign bank families, office of the same institution, subject to and offices of an Edge corporation will the pass-through rules applicable to all continue to share one low reserve depository institutions. This provision tranche and one reserve exemption and could have been interpreted to preclude can allocate the tranche and exemption these institutions from using an among offices or groups of offices that unaffiliated pass-through file separate deposit reports.4 correspondent. The Board proposed to Section 204.3(b) Form and Location of clarify that a foreign bank or Edge Reserves corporation family may choose any In June 1997, the Board amended eligible institution as a pass-through § 204.3(b) to set forth where a domestic correspondent, such as a domestic depository institution is located for depository institution or a office of purposes of determining the Federal another foreign bank, in addition to an Reserve Bank where the institution will office of its own family. Although the maintain its reserve balances (see Board believes that these entities will footnote 1). Specifically, an institution generally choose one of their own is considered to be located in the offices as the pass-through Federal Reserve District specified in its correspondent, allowing the choice is charter or organizing certificate, or, if no comparable to the treatment of domestic such location is specified, the location depository institutions under Regulation of its head office. The Board can make D. The Board received two comments on exceptions to the general rule for a this amendment, both in support, and particular institution after considering has adopted it as proposed. The Board certain criteria. The Board proposed to has also revised § 204.3(i)(l) to provide apply the same rule to foreign bank that a Reserve Bank may make offices and Edge corporations. For exceptions to the requirement that an foreign banks and Edge corporations institution can choose only one pass that pass all reserve balances through a through correspondent. Such an single correspondent, the location of the exception may be necessary, for pass-through correspondent would example, during a transition period after the merger of two respondents with two 3 The am ount of an in stitu tio n ’s net transaction different pass-through correspondents. accounts in the low reserve tranche ($0 to $49.3 Account Maintenance. Former m illion) carries a lower reserve requirem ent (3 § 204.3(i) required a pass-through percent) than the am ount above the tranche (which correspondent to maintain accounts at carries a 10 percent requirem ent). The first $4.4 m illion of any institu tio n ’s reservable liabilities are each Federal Reserve Bank in whose exem pt from reserve requirem ents. District the respondent institutions were 4 Ordinarily, branches of a dom estic depository located. The Board proposed to remove institution w ould not file separate deposit reports unless they are in transition (for exam ple, after a m erger or other consolidation) from a m ultiple to a single reporting and account structure. 5 This lim itation is set forth in section 19(c)(1) of the Federal Reserve Act, 12 U.S.C. 461(c). the requirement that pass-though reserve balances must be held in the District where the respondent is located. This proposal was necessary to enable foreign bank families and Edge corporations to aggregate their required reserve balances in a single account held by a pass-through correspondent. The proposed amendment applied to pass-through arrangements for all domestic depository institutions as well. The Board received two comments that specifically discussed this amendment; both supported the change, citing improved efficiency and removal of impediments to interstate banking. The Board has adopted the amendment as proposed. Former Regulation D also provided that, when respondents are located in the same District as the pass-through correspondent, the correspondent may choose to maintain its own reserve balances and the pass-through reserve balances in a single commingled account or in two separate accounts. Under the Board’s proposal, correspondents would hold pass through balances in a single commingled account, along with the pass-through correspondent’s own reserve balances (if any) at the Reserve Bank in whose District the pass-through correspondent is located. The Board requested comment on whether correspondents should continue to have the option of separate accounts for their own reserve balances and the reserve balances they hold on a pass-through basis. The Board received two comments on this issue, both from Federal Reserve Banks. One commenter suggested that the Board allow correspondents to retain the option to have a separate account for pass-through reserve balances because the Federal Reserve Banks’ subaccount structure does not provide account-holders with a daily ending balance for each subaccount. The other commenter stated that there is no need for a correspondent to maintain pass-through reserve balances in separate account from its own reserve balances and that the subaccount structure will provide the correspondent with sufficient information to segregate its own reserve balances from pass-through balances. The Board continues to believe the subaccount will suffice for tracking respondent activity and that correspondents will be able to calculate the ending balance for subaccounts based on the information they receive. The Board, therefore, has adopted the proposed provision that a correspondent maintain a single account for its own reserve balances (if any) and the pass 59778 Federal Register / Vol. 62, No. 214 / Wednesday, November 5, 1997 / Rules and Regulations through reserve balances of respondents. The Board has, however, added a provision to allow a Reserve Bank to make an exception to this rule. The Board anticipates that a Reserve Bank might permit an exception in cases where, for example, the correspondent is involved in a merger and holds a separate transition account at the same or another Reserve Bank. Former Regulation D was unclear as to whose money is in the account that contains the pass-through reserve balances, that is, whether the account is a Reserve Bank liability to the pass through correspondent or to the respondent.6 The Board proposed amendments to § 204.3(i) to clarify that the balances held by the pass-through correspondent are the property of the correspondent and represent a liability of the Reserve Bank solely to the correspondent, regardless of whether the funds represent the reserve balances of another office or institution that have been passed through the correspondent. The Board received two comments on this proposal, both in favor, and has adopted the amendment as proposed. Services. Former § 204.3(i)(5) contained provisions regarding the services available to pass-through correspondents and respondents. The Board proposed to remove these provisions from Regulation D. The terms of services offered by the Reserve Banks are covered in Regulation J (12 CFR part 210) and the Reserve Banks’ operating circulars. The Board received one comment on this proposal, in support of the change. The Board has eliminated this provision, as proposed. Technical Changes The Board also proposed editorial and conforming amendments to §§ 204.3(i) and 204.9(b) of Regulation D. The Board received no comments on these changes. Because of the addition of the consolidated reporting provision in § 204.3(a), the technical amendment to a cross-reference in § 204.9(b) is no longer necessary. The Board has adopted the editorial changes to § 204.3(i) as proposed. Final Regulatory Flexibility Analysis Two of the three requirements of a final regulatory flexibility analysis (5 U.S.C. 604), (1) a succinct statement of the need for and the objectives of the rule and (2) a summary of the issues raised by the public comments, the agency’s assessment of the issues, and a 6 The call report instructions are m ore clear, stating that, from the perspective of the Federal Reserve Bank, pass-through balances are treated as balances due to the correspondent, not to the respondent. statement of the changes made in the final rule in response to the comments, are discussed above. The third requirement of a final regulatory flexibility analysis is a description of significant alternatives to the rule that would minimize the rule’s economic impact on small entities and reasons why the alternatives were rejected. The final amendments will apply to all depository institutions, U.S. branches and agencies of foreign banks, and Edge and Agreement corporations, regardless of size, and represent changes to the existing rules that should reduce burden for those institutions that are part of a pass-through arrangement for the purpose of maintaining required reserve balances. The amendments would increase flexibility for those institutions by eliminating restrictions on where pass-through correspondents must maintain accounts. The amendments should not have a negative economic impact on small institutions, and, therefore, there were no significant alternatives that would have minimized the economic impact on those institutions. Paperwork Reduction Act In accordance with the Paperwork Reduction Act of 1995 (44 U.S.C. 3506; 5 CFR 1320 Appendix A.l), the Board reviewed the final rule under the authority delegated to the Board by the Office of Management and Budget. The proposed rule contained no new collections of information and proposed no substantive changes to existing collections of information pursuant to the Paperwork Reduction Act. However, one of the changes in the proposed rule had the potential to reduce reporting burden for a subset of respondents on existing information collections by allowing fewer reports. The change would have granted Edge corporations and U.S. branches and agencies of foreign banks the option to file single reports of deposits and Eurocurrency data aggregated nationwide. Currently these respondents file deposits and Eurocurrency reports aggregated by each state and Federal Reserve District in which their offices are located. None of the comments received specifically addressed reporting burden. However, as discussed earlier in this notice, several commenters raised problems associated with not filing the reports with each individual respondent’s Federal Reserve District. The Board believes that these problems outweigh any potential efficiencies afforded by such changes. The final rule does not contain any of the proposed elective changes in reporting. Therefore, no collections of information pursuant to the Paperwork Reduction Act are revised by the final rule. List o f Subjects in 12 C F R P a rt 204 Banks, Banking, Federal Reserve System, Reporting and recordkeeping requirements. For the reasons set out in the preamble, 12 CFR part 204 is amended as set forth below. PART 204— RESERVE REQUIREMENTS OF DEPOSITORY INSTITUTIONS (REGULATION D) 1. The authority citation for part 204 continues to read as follows: A u th o rity : 12 U.S.C. 248(a), 248(c), 371a, 461, 601, 611, a n d 3105. 2. In § 204.3, paragraphs (a), (b)(1), (b)(2)(i), and (i) are revised to read as follows: §204.3 Computation and maintenance. (a) Maintenance and reporting o f required reserves. (1) Maintenance. A depository institution, a U.S. branch or agency of a foreign bank, and an Edge or Agreement corporation shall maintain reserves against its deposits and Eurocurrency liabilities in accordance with the procedures prescribed in this section and § 204.4 and the ratios prescribed in § 204.9. Reserve-deficiency charges shall be assessed for deficiencies in required reserves in accordance with the provisions of § 204.7. For purposes of this part, the obligations of a majorityowned (50 percent or more) U.S. subsidiary (except an Edge or Agreement corporation) of a depository institution shall be regarded as obligations of the parent depository institution. (2) Reporting, (i) Every depository institution, U.S. branch or agency of a foreign bank, and Edge or Agreement corporation shall file a report of deposits (or any other required form or statement) directly with the Federal Reserve Bank of its District, regardless of the manner in which it chooses to maintain required reserve balances. A foreign bank’s U.S. branches and agencies and an Edge or Agreement corporation’s offices operating within the same state and the same Federal Reserve District shall prepare and file a report of deposits on an aggregated basis. (ii) A Federal Reserve Bank shall notify the reporting institution of its reserve requirements. Where a pass through arrangement exists, the Reserve Bank will also notify the pass-through correspondent of its respondent’s required reserve balances. Federal Register / Vol. 62, No. 214 / Wednesday, November 5, 1997 / Rules and Regulations 59779 Federal Reserve Bank or through a pass balances (respondent) may select only through correspondent. one institution to pass through its (ii) A pass-through correspondent required reserve balances, unless otherwise permitted by Federal Reserve shall be responsible for assuring the Bank in whose district the respondent is maintenance of the appropriate aggregate level of its respondents’ located. Eligible institutions through required reserve balances. A Federal which respondent required reserve Reserve Bank will compare the total balances may be passed (correspondents) are Federal Home Loan reserve balance required to be maintained in each account with the Banks, the National Credit Union total actual reserve balance held in such Administration Central Liquidity account for purposes of determining Facility, and depository institutions, required reserve deficiencies, imposing U.S. branches or agencies of foreign or waiving charges for deficiencies in banks, and Edge and Agreement required reserves, and for other reserve corporations that maintain required maintenance purposes. A charge for a reserve balances at a Federal Reserve deficiency in the aggregate level of the office. In addition, the Board reserves the right to permit other institutions, on required reserve balance will be imposed by the Reserve Bank on the a case-by-case basis, to serve as pass correspondent maintaining the account. through correspondents. The (iii) Each correspondent is required to correspondent chosen must maintain detailed records for each of its subsequently pass through the required respondents in a manner that permits reserve balances of its respondents Federal Reserve Banks to determine directly to a Federal Reserve Bank. The whether the respondent has provided a correspondent placing funds with a sufficient required reserve balance to Federal Reserve Bank on behalf of the correspondent. A correspondent respondents will be responsible for passing through a respondent’s reserve account maintenance as described in balance shall maintain records and paragraphs (i)(2) and (i)(3) of this make such reports as the Board or section. Reserve Bank requires in order to insure (ii) Respondents or correspondents the correspondent’s compliance with its may institute, terminate, or change pass responsibilities for the maintenance of a through arrangements for the respondent’s reserve balance. Such maintenance of required reserve records shall be available to the Reserve balances by providing all Banks as required. documentation required for the (iv) The Federal Reserve Bank may establishment of the new arrangement terminate any pass-through relationship or termination of the existing in which the correspondent is deficient arrangement to the Federal Reserve in its recordkeeping or other Banks involved within the time period responsibilities. provided for such a change by those (v) Interest paid on supplemental Reserve Banks. reserves (if such reserves are required (2) Account maintenance. A under § 204.6) held by a respondent will correspondent that passes through be credited to the account maintained required reserve balances of by the correspondent. respondents shall maintain such By o rd e r o f th e B oard o f G overnors o f th e balances, along with the F ed eral R eserve System , O ctober 30, 1997. correspondent’s own required reserve W illiam W. W iles, balances (if any), in a single Secretary of the Board. commingled account at the Federal [FR Doc. 9 7 -2 9 2 0 3 F iled 1 1 -4 -9 7 ; 8:45 am] Reserve Bank in whose District the BILLING CODE 6 210 -01 -P correspondent is located, unless otherwise permitted by the Reserve Bank. The balances held by the correspondent in an account at a Reserve Bank are the property of the correspondent and represent a liability of the Reserve Bank solely to the correspondent, regardless of whether the funds represent the reserve balances of another institution that have been passed through the correspondent. * * * * * (3) Responsibilities o f parties, (i) Each (i) Pass-through rules. (1) Procedure. individual depository institution, U.S. (i) A nonmember depository institution, branch or agency of a foreign bank, or a U.S. branch or agency of a foreign Edge or Agreement corporation is bank, or an Edge or Agreement responsible for maintaining its required corporation required to maintain reserve reserve balance either directly with a (iii) The Board and the Federal Reserve Banks will not hold a pass through correspondent responsible for guaranteeing the accuracy of the reports of deposits submitted by its respondents. (3) Allocation o f low reserve tranche and exemption from reserve requirements. A depository institution, a foreign bank, or an Edge or Agreement corporation shall, if possible, assign the low reserve tranche and reserve requirement exemption prescribed in § 204.9(a) to only one office or to a group of offices filing a single aggregated report of deposits. The amount of the reserve requirement exemption allocated to an office or group of offices may not exceed the amount of the low reserve tranche allocated to such office or offices. If the low reserve tranche or reserve requirement exemption cannot be fully utilized by a single office or by a group of offices filing a single report of deposits, the unused portion of the tranche or exemption may be assigned to other offices or groups of offices of the same institution until the amount of the tranche (or net transaction accounts) or exemption (or reservable liabilities) is exhausted. The tranche or exemption may be reallocated each year concurrent with implementation of the indexed tranche and exemption, or, if necessary during the course of the year to avoid underutilization of the tranche or exemption, at the beginning of a reserve computation period. (b) Form and location o f reserves. (1) A depository institution, a U.S. branch or agency of a foreign bank, and an Edge or Agreement corporation shall hold reserves in the form of vault cash, a balance maintained directly with the Federal Reserve Bank in the Federal Reserve District in which it is located, or, in the case of nonmember institutions, with a pass-through correspondent in accordance with § 204.3(i). (2) (i) For purposes of this section, a depository institution, a U.S. branch or agency of a foreign bank, or an Edge or Agreement corporation is located in the Federal Reserve District that contains the location specified in the institution’s charter, organizing certificate, or license or, if no such location is specified, the location of its head office, unless otherwise determined by the Board under paragraph (b)(2)(ii) of this section.
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