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FEDERAL RESERVE SYSTEM 12 CFR Part 229 Regulation CC

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FEDERAL RESERVE SYSTEM 12 CFR Part 229 Regulation CC FEDERAL RESERVE SYSTEM 12 CFR Part 229 Regulation CC [Docket No. R-1637] RIN 7100-AF 28 BUREAU OF CONSUMER FINANCIAL PROTECTION 12 CFR Part 1030 [Docket No. CFPB–2018–0035] RIN 3170–AA31 Availability of Funds and Collection of Checks (Regulation CC) AGENCY: Board of Governors of the Federal Reserve System (Board) and Bureau of Consumer Financial Protection (Bureau) ACTION: Final rule. SUMMARY: The Board and the Bureau (Agencies) are amending Regulation CC, which implements the Expedited Funds Availability Act (EFA Act), to implement a statutory requirement in the EFA Act to adjust the dollar amounts under the EFA Act for inflation. The Agencies are also amending Regulation CC to incorporate the Economic Growth, Regulatory Relief, and Consumer Protection Act (EGRRCPA) amendments to the EFA Act, which include extending coverage to American Samoa, the Commonwealth of the Northern Mariana Islands, and Guam, and making certain other technical amendments. DATES: This rule is effective July 1, 2020, except for the amendments to §§ 12 CFR 229.2(c), (ff), and (jj), 229.12(e), 229.43, and 12 CFR Part 1030 which are effective [INSERT DATE 60 DAYS AFTER DATE OF PUBLICATION IN THE FEDERAL REGISTER]. FOR FURTHER INFORMATION CONTACT: Board: Gavin L. Smith, Senior Counsel (202) 452-3474, Legal Division, or Ian C.B. Spear, Manager (202) 452-3959, Division of Reserve Bank Operations and Payment Systems. Bureau: Joseph Baressi and Marta Tanenhaus, Senior Counsels, Office of Regulations, at (202) 435-7700. If you require this document in an alternative electronic format, please contact [email protected]. SUPPLEMENTARY INFORMATION: I. Background Regulation CC (12 CFR part 229) implements the EFA Act and the Check Clearing for the 21st Century Act (Check 21 Act).1 Subpart B of Regulation CC implements the requirements set forth in the EFA Act regarding the availability schedules within which banks2 must make funds available for withdrawal, exceptions to those schedules, disclosure of funds availability policies, and payment of interest. The EFA Act and subpart B of Regulation CC contain specified dollar amounts, including: (1) the minimum amount of deposited funds that banks must make available for withdrawal by opening of business on the next day for certain check deposits (“minimum amount”);3 (2) the amount a bank must make available when using the EFA Act’s permissive adjustment to the funds-availability rules for withdrawals by cash or other means (“cash withdrawal amount”);4 (3) the amount of funds deposited by certain checks in a new account that are subject to next-day availability (“new-account amount”);5 (4) the 1 Expedited Funds Availability Act, 12 U.S.C. 4001 et seq.; Check Clearing for the 21st Century Act, 12 U.S.C. 5001 et seq. 2 Section 229.2(e) of Regulation CC defines “bank” to include banks, savings institutions, and credit unions. 3 The minimum amount is currently $200. See section 1086(e) of the Dodd-Frank Act; 12 U.S.C. 4002(a)(2)(D). 4 The cash withdrawal amount is currently $400. 12 U.S.C. 4002(b)(3)(B). 5 The new-account amount is currently $5,000. 12 U.S.C. 4003(a)(3). -2- threshold for using an exception to the funds-availability schedules if the aggregate amount of checks on any one banking day exceed the threshold amount (“large-deposit threshold”);6 (5) the threshold for determining whether an account has been repeatedly overdrawn (“repeatedly overdrawn threshold”);7 and (6) the civil liability amounts for failing to comply with the EFA Act’s requirements.8 The Dodd-Frank Wall Street Reform and Consumer Protection Act (Dodd-Frank Act) made certain amendments to the EFA Act, and these amendments were effective on July 21, 2011.9 Section 609(a) of the EFA Act,10 as amended by section 1086(d) of the Dodd-Frank Act, provides that the Board and the Director of the Bureau shall jointly prescribe regulations to carry out the provisions of the EFA Act, to prevent the circumvention or evasion of such provisions, and to facilitate compliance with such provisions. Additionally, section 1086(f) of the Dodd-Frank Act added section 607(f) of the EFA Act, which provides that the dollar amounts under the EFA Act shall be adjusted every five years after December 31, 2011, by the annual percentage increase in the Consumer Price Index for 6 The large-deposit threshold is currently $5,000. 12 U.S.C. 4003(b)(1). 7 The repeatedly overdrawn threshold is currently $5,000. 12 CFR 229.13(d). This dollar amount is not specified in the EFA Act, but is a result of the authority of the Board and the Bureau under section 604(b)(3) of the EFA Act (12 U.S.C. 4003(b)(3)) to establish reasonable exceptions to time limitations for deposit accounts that have been overdrawn repeatedly. The Board and the Bureau proposed to use their authority under section 604(b)(3) and also their authority under section 609(a) (12 U.S.C. 4008(a)), which is discussed below, to index the repeatedly overdrawn threshold in the same manner as the other dollar amounts. The Board and the Bureau stated that they believe that indexing the repeatedly overdrawn threshold would be consistent with the need identified by Congress to prevent such dollar amounts from being eroded by inflation. The Board and the Bureau did not receive comments suggesting that they should treat the repeatedly overdrawn threshold differently from the other dollar amounts, and they finalize this aspect of the proposal for the reasons stated in the proposal. 8 The civil liability amounts are currently “not less than $100 nor greater than $1,000” for an individual action and “not more than $500,000 or 1 percent of the net worth” of a depository institution for a class action. 12 U.S.C. 4010(a). 9 Pub. L. 111-203, sections 1062, 1086, 1100H, 124 Stat. 2081 (2010); 75 FR 57252 (Sept. 20, 2010). 10 12 U.S.C. 4008(a). -3- Urban Wage Earners and Clerical Workers (CPI-W), as published by the Bureau of Labor Statistics, rounded to the nearest multiple of $25.11 Finally, the Economic Growth, Regulatory Relief, and Consumer Protection Act (EGRRCPA) made amendments to the EFA Act to extend its application to American Samoa, the Commonwealth of the Northern Mariana Islands, and Guam.12 The effect of these statutory amendments is to subject banks in American Samoa, the Commonwealth of the Northern Mariana Islands, and Guam to the EFA Act’s requirements related to funds availability, payment of interest, and disclosures. Banks in those territories would be able to avail themselves of the one-day extension of the availability schedules permitted by the EFA Act and § 229.12(e) of Regulation CC. II. Summary of proposed rule, comments received, and final rule On December 10, 2018, the Agencies published a notice of proposed rulemaking (proposal) to implement the statutory requirement in the EFA Act to adjust the dollar amounts under the Act for inflation and to implement the EGRRCPA amendments to the EFA Act.13 The Agencies received 32 responses to their proposal from a variety of commenters, including depository institutions, service providers, trade associations, clearinghouses, consumer organizations, and private individuals.14 Nine commenters explicitly expressed general support for the proposal, two additional trade association commenters specifically supported the 11 12 U.S.C. 4006(f). 12 Pub. L. 115-174, section 208 (2018). The amendments that section 208 of the EGRRCPA made to the EFA Act became effective on June 23, 2018. See section 208(b) of the EGRRCPA. 13 83 FR 63431, Dec. 10, 2018. In their December 2018 Federal Register notice, the Agencies also provided an additional opportunity for public comment on certain amendments to the funds-availability provisions in Regulation CC that the Board proposed in 2011. The Agencies are not herein addressing the Board’s 2011 proposal or the comments received thereon. 14 The Board received 18 comments and the Bureau received 23. Of the 41 total comments received, nine commenters submitted identical comment letters to both Agencies. -4- proposal’s calculation methodology and timeframes, and twelve commenters specifically supported the proposed one-year effective date. As discussed in more detail below, three institutions opposed basic tenets of the statutory requirements based on concerns about loss to institutions due to customer fraud: the first disagreed altogether with need to make inflationary adjustments for purposes of funds availability; the second disagreed with adjusting the statutory dollar amounts every five years; and the third opposed basing the hold amount on the CPI, stating that individual check amounts are not reflective of inflation.15 Some commenters addressed other specific aspects of the proposal. As discussed in more detail below, the Agencies considered all of the comments received and are adopting the amendments to Regulation CC described below. A. Effective Dates for Inflation Adjustments The Agencies continue to believe, as stated in the proposal, that section 607(f) of the EFA Act is reasonably interpreted to provide for five years to elapse between a given set of adjustments and the next set of adjustments, with the first set of adjustments occurring sometime after December 31, 2011. The Agencies believe that Congress intended to balance its concern about changes being too frequent or abrupt with the need to prevent the EFA Act’s dollar amounts from being eroded by inflation. As regulators of depository institutions, the Agencies are likewise familiar with the challenges that institutions can face if changes to regulatory requirements are too frequent or abrupt. Congress balanced these concerns by providing that the adjustments would be effective at five-year intervals; by providing that the first set of adjustments would not occur until after December 31, 2011, which ensured that at least a full 15 Because the statute is clear in its directives to make inflationary adjustments to dollar amounts under the EFA Act every five years based on the CPI-W, the Agencies are finalizing the rule as proposed with regard to these fundamental statutory requirements.
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