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FEDERAL RESERVE BANK OF NEW YORK [ Circular No. 10635 ~l April 26, 1993 SUPPLEMENTAL DISCLOSURE OF ESTIMATED FAIR VALUES Comments Requested by June 14 To All Depository Institutions, and Others Concerned , in the Second Federal Reserve District: Following is the text of a statement issued by the Federal Financial Institutions Exam ination Council: The Federal Financial Institutions Examination Council has announced that it is seeking public comment on the implementation of certain disclosure requirements mandated by Section 121 of the Federal Deposit Insurance Corporation Act of 1991 (FDICIA). The Council’s four banking agencies have developed a method for insured depository institutions to provide supplemental fair value disclosures for their assets and liabilities, to the extent feasible and practicable, in certain reports filed with the agencies. Comments will be accepted on the proposal for 60 days after its publication in the Federal Register. Printed on the following pages is the text of the F F IE C ’s official notice on this matter, as published in the Federal Register of A pril 13. Com ments should be subm itted by June 14, 1993, and should be sent to the FFIEC , as indicated in the notice, or to our Bank Analysis D epartm ent. E. G er a ld C o r r ig a n , President. Federal Register / VoL 58, No, 69 / Tuesday, April 13, 1993 / Notices 19257 FEDERAL FINANCIAL INSTITUTIONS EXAMINATION COUNCIL Supplemental Disclosure of Estimated Fair Values AGENCY: Federal Financial Institutions Examination Council. ACTION: Request for comment. SUMMARY: S ectio n 1 2 1 o f the Federal D ep o sit Insurance Corporation Im provem en t A ct o f 1 9 9 1 (FDICIA) requires the F ederal R eserve Board (FRB), th e F ederal D ep o sit Insurance C orporation (FDIC), th e O ffice o f th e C om ptroller o f the C urrency (OCC), and the O ffice o f Thrift S u p ervision (OTS) (co llec tiv e ly , th e federal banking a g en cies or th e a g en cies) to d ev elo p join tly a m eth od for in su red d ep ository in stitu tio n s to p ro v id e su p p lem en tal fair v a lu e d isclo su r es for th eir assets and lia b ilities, to th e ex ten t feasib le and practicable, in certain reports filed w ith the agen cies. U n d er g en erally accep ted accou n tin g p rin cip le s (GAAP), financial statem ents issu e d for fisca l years ending after D ecem ber 1 5 , 1 9 9 2 , b y en tities w ith $ 1 5 0 m illio n or m ore in total assets m u st in c lu d e d isclo su r es about the estim ated fair v a lu e o f fin an cial instrum ents. P ursuant to external audit regulations to b e ad op ted b y the FDIC pursuant to se ctio n 1 1 2 o f FDICIA, in su red d ep o sito ry in stitu tio n s o f th is siz e (or o f su ch larger siz e as th e FDIC m ay d eterm in e) w ill b e required to su b m it an nu al reports w h ic h contain an nu al fin an cial statem ents prepared in accord ance w ith GAAP and other d isclo su r es prescribed b y th e agencies. T h e F ederal F in a n cia l In stitutions E xam ination C o u n cil (FFIEC) requests p u b lic co m m en t on w h eth er insured d ep o sito ry in stitu tio n s that w ill be required to file an n u al reports pursuant to se ctio n 1 1 2 o f FDICIA sh o u ld provide su p p lem en ta l fair v a lu e d isclo su res for their a ssets an d lia b ilitie s in th ose reports in accord ance w ith th e m ethod d e v elo p e d join tly b y th e agen cies. U nd er th is m eth od , su ch in stitu tio n s w o u ld in c lu d e in th eir an nu al financial statem en ts prepared in accordance w ith G AAP th e d isc lo su r e s about fair valu es o f fin an cial in stru m en ts prescribed by F in a n cia l A cc o u n tin g Standards Board Statem en t N o. 1 0 7 (FASB 1 0 7 ). S u p p lem en ta l u n a u d ited d isclo su res 19258 Federal Register t VoL 58, No. 6 9 / Tuesday, April 13, 1993 / Notices about fair v a lu es o f n o n finan cial assets and liab ilities w o u ld a ccom p an y th e annual financial statem ents an d w o u ld be m ade b y ap plying th e co n ce p ts an d p rin cip les set forth in F A SB 1 0 7 a n d other relevant G A A P standards to th e se assets and liabilities. The FFIEC a lso requests p u b lic com m ent on w heth er it is feasib le and practicable for in su red d ep o sito ry in stitu tions to in clu d e su p p lem en ta l fair value d isclosu res for their on- and offbalance sh ee t assets and lia b ilities o n an annual b asis in their “reports o f con d itio n ” and on th e c o sts associated w ith m aking th ese d isclosu res. T h e “reports o f co n d itio n ” are the C onsolidated R eports o f C ond ition and Incom e (Call R eports) h ie d by in sured com m ercial banks an d FDIC-supervised savings banks, the Thrift F in ancial Report (TFR) h ied by in su red savin gs associations, a n d th e Report o f A ssets and L iabilities o f U .S. B ranches and A gen cies o f Foreign Banks h ie d by insured U .S. branches o f foreign banks. DATES: C om m ents m u st be receiv ed b y June 14* 1 9 9 3 . ADDRESSES: C om m ents sh o u ld be directed to Joe M. Cleaver, E xecu tive Secretary, Federal F in a n c ia l In stitu tion s Exam ination C ouncil, 2 1 0 0 P en nsylvania A v en u e , NW ., su ite 2 0 0 , W ashington, DC 2 0 0 3 7 . (F ax num ber (2 0 2 ) 6 3 4 - 6 5 5 6 .) FOR FURTHER INFORMATION CONTACT: FRB—G erald A. Edwards, Jr., A ssistant D irector, (2 0 2 ) 4 5 2 —2 7 4 1 , o r Charles H. H olm , Project Manager, ( 2 0 2 ) 4 5 2 - 3 5 0 2 , D iv isio n o f Banking Sup ervision and R egu lation, Board o f Governors o f th e Federal R eserve System , 2 0 th and C on stitu tion A ven u e, NW., W ashington, DC 2 0 5 5 1 . FDIC— Robert F. Storch, C hief, A ccoun ting Section , D iv isio n o f S up ervision , Federal D ep o sit Insurance Corporation, 5 5 0 17 th Street, NW ., W ashington, DC 2 0 4 2 9 , ( 2 0 2 ) 8 9 6 - 8 9 0 6 . QQC—C hristine A. Tate, Professional A ccoun ting F ello w , O ffice o f th e C h ief N ational Bank Exam iner, O ffice o f th e C om ptroller o f th e Currency, 2 5 0 E Street, SW ., W ashington, DC 2 0 2 1 9 , (2 0 2 ) 8 7 4 - 5 4 1 1 . OTS— Robert J. P om eranz, O ffice o f Thrift S up ervision , 1 7 0 0 G Street, NW ., W ashington. DC 2 0 5 5 2 , (2 0 2 ) 9 0 6 - 5 6 5 0 . SUPPLEM ENTARY INFORMATION: I. Statutory R equirem ents S ectio n 37(a)(3K D ) o f the Federal D eposit Insurance A ct (th e FDI A ct) (1 2 U.S.C. 1831n(a)(3M D )), a s added by sectio n 1 2 1 o f FDICIA (Pub. L. 1 0 2 - 2 4 2 , 1 0 5 Stat. 2 2 5 1 ) , c a lls u p o n d ie federal banking a gen cies to d e v e lo p Jointly a m ethod for in su red d ep ository in stitu tion s to p ro v id e su p p lem en ta l d isclosu re o f th e estim ated fair m arket valu e o f assets e n d lia b ilities, to th e extent fea sib le e n d practicable, in certain reports B led w ith th e a gen cies. II. G AAP R eq uirem ents O n D ecem ber 1 6 , 1 9 9 1 , th e F in an cial A ccou n tin g Standards Board (FASB) issu ed Statem ent N o. 1 0 7 , “D isclosu res about Fair V alues o f F in an cial Instrum ents.” A fin an cial in stru m en t is d efined in th is accou n tin g stand ard as— Cash, evidence of an ownership interest in an entity, or a contract that both: a. Imposes on one entity a contractual obligation (1) to deliver cash or another financial instrument to a second entity or (2) to exchange other financial instruments on potentially unfavorable terms with the second entity; b. Conveys to that second entity a contractual right (1) to receive cash or another financial instrument from the first entity or (2) to exchange other financial instruments on potentially favorable terms with die first entity. T he FA SB ’s sum m ary o f S tatem ent No. 1 0 7 n otes that it requires— All entities to disclose the fair value of financial instruments, both assets and liabilities recognized and not recognized in the statement of financial position, for which it is practicable to estimate fair value. If estimating fair value is not practicable, this Statement requires disclosure of descriptive information pertinent to estimating the fair value of a financial instrument * * *. This Statement is effective for financial statements issued for fiscal years ending after December 15.1992, except for entities with less than $150 million in total assets in the current statement of financial position. For those entities, the effective date is for fiscal years ending after December 15,1995. A ccord ing to FASB 1 0 7 , th e term “p racticable” m ean s that "an estim ate o f fair va lu e can be m ade w ith o u t incurring e x c e ssiv e c o sts.” A s an exam p le, the accou n tin g standard observes that— it might not be practicable for an entity to estimate the fair value of a class of financial instrument for which a quoted market price is not available because it has not yet obtained or developed the valuation model necessary to make the estimate, and the cost of obtaining an independent valuation appears excessive considering the materiality of the instruments to the entity. T hus, larger banking and thrift organizations (i.e., th o se w ith $ 1 5 0 m illio n or m ore in total assets) that issu e finan cial statem ents d ia l are prepared in accordance w ith GAAP are n o w required to in d u d e ad d ition al inform ation relating to the estim a ted fair valu es o f financial in stru m en ts as part o f their year-end fin a n cia l statem ents. The d isclo su res w o u ld n ot n orm ally b e in c lu d e d in th eir quarterly GAAP fin an cial statem ents. Furtherm ore, FASB 1 0 7 d o es n o t require estim ated fair v a lu e d isclo su r es for n o n fin an cial assets a n d lia b ilities (i.e., on- and offb alance sh eet a sse ts an d lia b ilities that are not fin an cial in stru m ents), but su ch d isclo su r es are n o t prohibited. HI. S u p p le m e n ta l F air V a lu e D isc lo su res in A n n u a l R eports U nd er S ectio n 1 1 2 o f FDICIA S ectio n 1 1 2 o f FDICIA, w h ich a d d s a sectio n 3 6 to th e F ederal D ep osit Insurance A ct ( 1 2 U .S .C 1 8 3 1 m ), requires in sured d ep ository in stitu tions w ith total a ssets o f $ 1 5 0 m illio n or m ore, or su c h h igh er le v e l as the FDIC m ay prescribe, to subm it to th e a g e n d e s an nual reports w h ic h con tain annual fin an cial statem ents prepared in accord ance w ith GAAP and “su ch other d isclo su r e requirem ents as the C orporation a n d th e appropriate Federal banking agen cy m ay prescribe.” 1 In certain circum stances, an in sured d ep ository in stitu tio n that is a su b sidiary o f a h o ld in g co m p a n y m ay satisfy th e requirem ent for an annual report con ta in in g annual financial statem ents and other d isclo su res under sectio n 1 1 2 by subm itting fin a n d a l statem ents and other d isclo su res for its parent h o ld in g com p an y on a co n so lid a ted basis. Pursuant to sectio n 1 2 1 o f FDICIA, the a g en cies h ave d ev elo p e d jo in tly a m eth od for th e se in su red d ep ository in stitu tio n s to p ro v id e su p p lem en tal d isclo su r e o f th e estim ated fair v a lu es o f their on- and off-balance sh eet assets and lia b ilities, to th e ex te n t feasib le and practicable, in th e ir a n n u al reports u nd er se ctio n 1 1 2 . FASB 1 0 7 form s the b asis for the agen cies* su p p lem ental fair v a lu e d isc lo su r e m ethod. T hus, th e m eth o d d e v elo p e d jointly by th e a g en cies for in su red d ep ository in stitu tio n s that w ill b e subject to the FDIC’s extern al au d it regu lations im p lem en tin g se ctio n 1 1 2 o f FDICIA ad d resses fin an cial in stru m ents separately from n o n fin a n cia l a ssets an d lia b ilities. U nd er th is m ethod , the an nual GAAP fin an cial statem ents that w ill be co n ta in ed in th e annual reports th ese in stitu tio n s m u st su bm it to th e a g en cies u n d er se ctio n 1 1 2 w o u ld in clu d e th e d isc lo su r e s about finan cial in stru m en ts that are prescribed by FASB 107. In ad d ition , u n d er th e a g en cies’ m ethod , su p p lem en ta l u n au d ited d isclo su r es about fair v a lu es o f n o n fin a n cia l a sse ts a n d lia b ilities w o u ld 1 The FDIC has issued proposed regulations to Implement section 112 oTFDICIA See 57~FR4251&. September 15,1092. Federal Register / Vol. 58, No. 69 / Tuesday. April 13, 1993 / N otice* accom pany the an n u al finan cial statem ents in the an n u al reports o f th ese in stitu tions. T h ese su p p lem e n ta l u nau dited d isclo su r es w o u ld b e m a d e by ap p lyin g th e co n ce p ts and p rin cip les set forth in FA SB 1 0 7 and other relevant GAAP standards to th e n b n fin an cial assets an d lia b ilities. A cco rd in g ly , in stitu tion s that w ill b e subject to th e regulations im p lem en tin g sectio n 1 1 2 w o u ld d isc lo se th e fair v a lu e o f th o se n on fin an cial a ssets an d lia b ilities, both recogn ized and n o t reco g n ized in th e balance sh eet, for w h ic h it is feasib le and practicable to estim a te fair valu e. If estim ating fair v a lu e is n ot feasib le and practicable for certain n o n fin a n cia l assets and lia b ilities, d esc rip tiv e inform ation pertin en t to estim a tin g the fair valu e w o u ld b e d isc lo se d . S ectio n 1 1 2 p rovid es th e auth ority for an nu al reports to con tain su c h su p p lem en ta l unaudited d isclo su re s. T he FFIEC sp e c ific a lly requests com m ent on w h eth er it is feasib le and practicable for in stitu tio n s to p rovid e su p p lem en tal u n a u d ited d isclo su r es about fair v a lu es o f n o n fin a n cia l a ssets and lia b ilities in th e a n n u a l reports that w ill b e required to b e file d w ith th e agen cies u nd er se ctio n 1 1 2 . W hen resp ond ing to th is q u estio n , com m enters sh o u ld n o te that n on fin an cial a ssets in c lu d e foreclosed real estate w h ich , u n d er GAAP, m u st b e carried on th e b a la n ce sh ee t at th e low er o f (1) the fair v a lu e o f th e a sset m in u s the estim ated co sts to se ll or (2) th e cost o f the asset. IV. R eports o f C on d ition T he "reports o f c o n d itio n ” are the C onsolidated R eports o f C ond ition and Incom e (Call R eports) filed by in su red com m ercial banks and FDIC-supervised savings banks, th e Thrift F in an cial Report (TFK) file d b y in su red savin gs associations, and th e Report o f A sse ts and L iabilities o f U .S. B ranches and A gen cies o f F oreign B anks file d by insured U.S. bran ch es o f foreign banks. T h ese reports are d esig n ed to serve th e supervisory, regulatory, and ec o n o m ic p o licy n eed s o f th e a g en cies and, as such, are n ot prim arily acco u n tin g d ocum ents. A s m en tion ed in se ctio n II. above, the su p p lem en tal d isclo su r es about fair valu es o f fin an cia l in stru m ents prescribed by FA SB 1 0 7 w o u ld norm ally b e in clu d e d o n ly in an en tity's year-end GAAP fin a n cia l statem ents, n ot in the quarter-end GAAP fin an cial statem ents for th e first three quarters o f its fiscal year. A s a co n se q u en ce , th e FFIEC b e lie v e s that it w o u ld im p o se ex c essiv e co sts an d , therefore, n ot b e feasible a n d practicable for in su red dep ository in stitu tio n s to m ake su p p lem en ta l d isclo su r es o f th e estim ated fair v a lu es o f oh- a n d offb alan ce sh ee t a ssets and lia b ilities in reports o f c o n d itio n at quarter-end report d ates other than at an in stitu tio n ’s fisca l year-end. Furtherm ore, m o st o f th e insured d ep ository in stitu tio n s that w ill b e subject to th e regulations im p lem en tin g sectio n 1 1 2 o f FDICIA are su b sid ia ries o f h o ld in g com p an ies. T o th e exten t p erm issib le u n d er th ese regulations, th e annual reports o f th ese in stitu tio n s u n d er se ctio n 1 1 2 w ill lik e ly con tain co n so lid a ted an n u al finan cial statem ents and other d isclo su r es o f th e in stitu tio n s' h o ld in g co m p a n ie s rather than th o se o f th e in d iv id u a l in stitu tio n s th em selv es. T h is m ean s that th e su p p lem en ta l fair v a lu e d isc lo su r e s that in stitu tio n s w ill in clu d e in th eir an n u al reports in accordance w ith th e m eth od d ev elo p e d b y th e a gen cies (and d iscu sse d in sectio n III. above) w ill for th e m ost part b e presen ted on a co n so lid a ted h o ld in g com p an y b asis. W hen preparing co n so lid a ted fin an cial statem ents an d d isclo su res, on- an d offb alan ce sh eet assets and lia b ilitie s o f in d iv id u a l in sured d ep ository in stitu tio n su b sid iaries o f th e h o ld in g com p an y that resu lt from in tercom p an y transactions are elim inated . C onsequ en tly, for p u rposes o f the an nual reports u nd er sectio n 1 1 2 , fair v a lu es w ill b e estim ated o n ly for th o se a ssets and lia b ilities o f a su bsidiary in stitu tio n that are n o t elim in a ted in co n so lid a tio n . S in c e reports o f co n d itio n are prepared on an in d iv id u a l in stitu tio n b asis, in su red d ep ository in stitu tio n s that w ill be subject to sectio n 1 1 2 w o u ld in cu r ad d ition al co sts to estim ate th e fair v a lu es o f their a ssets an d lia b ilities that w ere elim in a ted as part o f th e h o ld in g com p an y co n so lid a tio n . Furtherm ore, ad d ition al co sts m ay b e incurred if fair v a lu es are required to be estim ated on an in d iv id u a l in stitu tion b asis sin ce greater disaggregation o f asset p o o ls and groups o f lia b ilities w o u ld b e n ecessary and b eca u se m ateriality th resh old s m ay b e low er for in d iv id u a l in stitu tio n s than for the co n so lid a ted entity. To the extent that th ese ad d ition al co sts are ex c essiv e, it w o u ld n ot b e feasib le and practicable for in stitu tio n s subject to section 1 1 2 o f FDICIA to p rovid e su p p lem en tal fair v a lu e d isclo su res in any o f their reports o f co n d itio n , in clu d in g th e year-end repent. In ad d ition , en tities w ith le ss than $ 1 5 0 m illio n in total assets are not required to p ro v id e th e su p p lem en ta l fair v a lu e d isclo su res prescribed by FA SB 1 0 7 in fin an cial statem ents prepared in accord an ce w ith GAAP u n til their fiscal years en d in g after 19259 D ecem ber 1 5 , 1 9 9 5 . In d e cid in g to d e ity th e effec tiv e d ate o f FA SB 1 0 7 for sm eller e n titie s u n til year-end 1 9 9 5 , the FA SB stated that th e three-year d elay w o u ld " p rovid e su ffic ie n t tim e for th ose en tities to d e v e lo p th e sy stem s n ecessary to p ro v id e th e required {fair valu e] d isclo su r es in lig h t o f th e ex p erien ce g a in ed b y larger e n titie s on th e u se o f va rio u s m eth o d s and a ssu m p tio n s for estim a tin g fair v a lu e.” T h is in d ica tes that th o se sm aller in su red d ep o sito ry in stitu tio n s (i.e., th o se n ot subject to se ctio n 1 1 2 o f FDICIA) that iss u e an nu al fin an cial statem ents prepared in accord ance w ith GAAP w o u ld in cu r e x c e s siv e co sts if th ey h ad to in c lu d e th e se fair valu e estim ates in th eir G AAP finan cial statem ents prior to year-end 1 9 9 5 . Therefore, th e FFIEC b e lie v e s that it w o u ld n o t b e fea sib le and practicable for sm aller in su red d ep o sitory in stitu tio n s to p ro v id e su p p lem en tal fair v a lu e d isclo su r es in th eir reports o f co n d itio n before year-end 1 9 9 5 . F in ally, there is n o gen eral statutory requirem ent for a ll in stitu tio n s w ith less than $ 1 5 0 m illio n in total assets to prepare G A A P fin a n cia l statem ents and file th em w ith th e federal banking a gen cies.2 T h us, m an y sm aller d ep ository in stitu tio n s w ill n o t be subject to th e su p p lem e n ta l fair v a lu e d isclo su r e requirem ents o f FA SB 1 0 7 . A s a result, th e FFIEC b e lie v e s it m ay n o t b e p o ssib le for sm aller in sured d ep ository in stitu tio n s to estim ate the fair v a lu es o f th eir fin a n cial instru m ents and their on- and off-balance sh eet n o n fin a n cia l a ssets an d liab ilities, either at year-end 1 9 9 5 or thereafter, w ith o u t incurring e x c e s siv e costs. T hus, b a sed o n th e factors d iscu sse d above an d a n y other co n sid era tio n s that m ay b e relevant, th e FFIEC requests p u b lic co m m en t on w h e th er it is feasib le and practicable for b oth larger and sm aller in su red d ep o sitory in stitu tio n s to in c lu d e su p p lem en tal d isclo su r es o f th e estim ated fair valu es o f their on- an d off-balance sh eet assets and lia b ilitie s in th eir reports o f co n d itio n . In th is regard, the FFIEC sp e c ific a lly requ ests com m en t on the am oun t o f a d d itio n a l co sts (both start up and an n u al) that in d iv id u a l * * Pursuant to section 12(b) or (g) of the Securities Exchange Act of 1934 (15 U.S.C. 781(b) (g)), insured depository institutions which have securities registered on a national securities exchange or which have total assets exceeding $1 million and a class of equity security held by 500 or more stockholders are required to register these securities with the appropriate federal banking agency. Fewer than 300 institutions with less than $150 million in total assets have securities that are registered with the agencies. These institutions prepare GAAP financial statements and file them with the agencies. 19260 Federal Register / Vol. 58, No. 69 / Tuesday, April 13. 1993 / Notices d ep ository in stitu tion s ex p ect that th e y w o u ld incur if they w ere required to estim ate th ese fair valu es for p urp oses o f their reports o f con d itio n . If in stitu tions and other com m en ters b eliev e that it w o u ld be feasib le and practicable to report estim ated fair valu es in the reports o f co n d itio n , it w ou ld be h elp fu l if th ese com m en ters w ou ld in dicate a format (su ch as a con d en sed , abbreviated format) that they b eliev e sh ou ld b e u sed for th ese d isclosures in reports o f con d ition . V. Request for Comment In addition to the issu e s for w h ich com m ent w as sp ecifica lly requested at the end o f section s HI. and IV. above, the FFDEC in v ites com m en t on all aspects o f the m ethod d e v elo p e d join tly by the agen cies (and d iscu sse d in section III. above) for in sured d ep ository in stitu tion s that w ill be subject to the FDIC’s external audit regulations to provide su p p lem en tal fair valu e d isclosu res in their an nu al reports under section 1 1 2 o f FDICIA. It w o u ld also be h elp fu l to the ag en cies if banking and thrift organizations that subm it com m en ts to the FFIEC en clo se w ith their com m en ts a co p y o f the FASB 1 0 7 estim ated fair valu e d isclo su r es that appear in their annual reports for 1 9 9 2 . Dated: April 8, 1993. Joe M. Cleaver, Executive Secretary, Federal Financial Institutions Examination Council. IFR Doc. 93-8581 Filed 4-12-93; 8:45 am] BILLING CODE 8210-01-N