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Agencies issue final rule to modernize Community Reinvestment Act regulations
On October 24, the Fed, FDIC, and OCC issued an interagency announcement regarding the modernization of their rules under the Community Reinvestment Act (CRA), a law enacted in 1977 to encourage banks to help meet the credit needs of their communities, especially low- and moderate-income (LMI) neighborhoods, in a safe and sound manner. The new rule overhauls the existing regulatory scheme that was first implemented in the mid-1990s.
For banks with assets of at least $2 billion (Large Banks), the final rule adds a new category of assessment area to the existing facility based assessment area (FBAA). Large Banks that do more than 20 percent of their CRA-related lending outside their FBAAs will have that lending evaluated in retail lending assessment areas, i.e., MSAs or states where it originated at least 150 closed-end home mortgage loans or 400 small business loans in both of the previous two years. All Large Banks will be subject to two new lending and two new community development tests, with lending and community development activities each counting for half a bank’s overall CRA rating. Banks with assets between $600 million and $2 billion will be subject to a new lending test. Large Banks with assets greater than $10 billion will also have special reporting requirements.
Additionally, the rule (i) implements a standardized scoring system for performance ratings; (ii) revises community development definitions and creates a list of community development activities eligible for CRA consideration, regardless of location; (iii) permits regulators to evaluate “impact and responsiveness factors” of community development activities; (iii) continues to make strategic plans available as an alternative option for evaluation; (iv) revises the definition of limited purpose bank so that it includes both existing limited purpose and wholesale banks and subjects those banks to a new community development financing test; and (v) considers online banking in the bank’s evaluations.
Most of the rule’s requirements will be effective January 1, 2026. The remaining requirements, including the data reporting requirements, will apply on January 1, 2027.
Agencies extend favorable CRA consideration for certain areas affected by Hurricane Maria
On September 20, the Federal Reserve, FDIC, and OCC announced they are providing a 36-month extension to give favorable consideration under the CRA for bank activities that help revitalize or stabilize areas in Puerto Rico and the U.S. Virgin Islands impacted by Hurricane Maria. This extension is the second extension following the original period provided in January 2018 and the first extension granted in May 2021.
The agencies determined that the FEMA’s designation of parts of Puerto Rico and the U.S. Virgin Islands as “active disaster areas” demonstrates ongoing community need to the area. The extension allows the agencies to give favorable consideration to a financial institution’s activities in the qualifying areas that satisfy the definition of “community development” under the CRA, including loans and investments, through September 20, 2026. The activities will be treated consistently with the agencies’ original Interagency Statement in January 2018.
Agencies release 2023 list of distressed, underserved communities
On June 23, the FDIC, Federal Reserve Board, and the OCC released the 2023 list of distressed or underserved nonmetropolitan middle-income geographies where revitalization or stabilization activities are eligible to receive Community Reinvestment Act (CRA) consideration. According to the joint release, the list of distressed nonmetropolitan middle-income geographies and underserved nonmetropolitan middle-income geographies are designated by the agencies under their CRA regulations and reflect local economic conditions such as unemployment, poverty, and population changes. Under CRA, banks are encouraged to help meet the credit needs of the local communities listed. For any geographies that were designated by the agencies in 2022 but not in 2023, the agencies apply a one-year lag period, so such geographies remain eligible for CRA consideration for another 12 months.
Hsu discusses significance of consumer trust in banking
On June 8, acting Comptroller of Currency Michael J. Hsu discussed the significance of consumer trust in banking, and announced the OCC is considering designing and releasing an annual survey to measure the extent of consumer trust in banking. (See OCC’s request for comments on its proposed annual trust survey.) Hsu noted that public trust in banking is imperative to a good relationship with the communities served and to ensure consumers do not rely on risky means for storing funds. Distrust also presents risks for banks, Hsu said, explaining that “banks that have material fairness and compliance deficiencies may face stiff civil money penalties, restrictions on growth, and sustained reputational damage, limiting their capacities to make loans.” Hsu’s focus on trust in the banking system is also inspired by the threatening impact of unfairness and a lack of inclusivity. Therefore, in addition to the survey, the OCC is focusing on methods of consumer protection to underpin public trust in banks. Efforts include strengthening and modernizing the Community Reinvestment Act to create more lending opportunities to those in low- and moderate-income areas, reforming overdrafts by issuing guidance on overdraft protection programs, and addressing bias in the appraisal of homes by issuing a proposed rule to implement quality control standards for automated valuation models.
Agencies cite need to update bank merger evaluation framework
On February 10, OCC Senior Deputy Comptroller and Chief Counsel Ben W. McDonough spoke before the OCC Banker Merger Symposium about the future of bank merger policy. Acting Comptroller of the Currency Michael J. Hsu’s prepared remarks, which were delivered on his behalf by McDonough, stressed the need to update the framework used for analyzing bank mergers. Hsu commented that without necessary enhancements, “there is an increased risk of approving mergers that diminish competition, hurt communities, or present systemic risks,” but cautioned that imposing a moratorium on bank mergers would inhibit growth and improvements that could benefit communities and increase competition. Hsu observed that “many experts have raised questions about the ongoing suitability of the current bank merger standards at a time of intense technological and societal change.” He noted that federal bank regulators currently use the Herfindahl–Hirschman Index (HHI) to assess market concentration—which, while transparent, empirically proven, and efficient—may not be as relevant since the bank merger guidelines were last updated in 1995. Hsu reflected that HHI—which is based solely on deposits—may now be “a less effective predictor of competition across product lines” due to the offering of other banking products, including online and mobile banking. Hsu also said that “the current framework for assessing the financial stability risks of bank mergers bears examining,” as “there is a resolvability gap for large regional banks in that our resolution tools may not be up to the task.” Additionally, Hsu pointed out that it is also critical to analyze a merger’s effects on the communities a bank serves, and that assessing each bank’s Community Reinvestment Act performance and ratings are just a starting point.
Separately, Federal Reserve Governor Michelle W. Bowman touched upon the topic of bank mergers during a speech before the American Bankers Association Community Banking Conference. Bowman discussed topics related to the Fed’s independence in bank regulation, predictability in bank merger applications, and tailoring of regulations and supervision. Among other things, Bowman commented that while the bank merger review framework is the same for all applications, each case varies widely, which “necessitates an in-depth review of each transaction on its own merits.” According to Bowman, “these reviews are most effective when the expectations of the regulators are clear in advance and the parties can reasonably anticipate the application review process.” She pointed to a recent increase in average processing times in the merger review process and expressed concerns about how delays may lead to increased operation risk, as well as fears that “the increase in average processing times will become the new normal.” Bowman said she believes that transparency between regulators and applicants can help to ensure clear expectations about certain potential delays.
FDIC announces Alabama, California disaster relief
On January 18, the FDIC issued guidance (see FIL-03-2023 and FIL-04-2023) to provide regulatory relief to financial institutions and help facilitate recovery in areas of Alabama affected by severe storms, straight-line winds, and tornadoes occurring on January 12, and in areas of California affected by severe winter storms, flooding, and landslides occurring from December 27 and continuing. The FDIC wrote that in supervising impacted institutions, it will consider the unusual circumstances those institutions face. The guidance suggested that institutions work with borrowers impacted by the severe weather to extend repayment terms, restructure existing loans, or ease terms for new loans “in a manner consistent with sound banking practices.” The FDIC noted that institutions may receive favorable Community Reinvestment Act consideration for community development loans, investments, and services in support of disaster recovery. The agency will also consider relief from certain reporting and publishing requirements.
Fed’s Bowman discusses the economy and bank supervision
On January 10, Federal Reserve Governor Michelle W. Bowman spoke before the Florida Bankers Association Leadership Luncheon regarding the economy and bank supervision. In her remarks, Bowman said that inflation is “much too high” and that her focus is on “bringing it down toward our 2 percent goal.” Bowman stated it is a “hopeful sign” that unemployment has remained low. However, she acknowledged that it is likely that as a part of the process, “labor markets will soften somewhat before we bring inflation back to our 2 percent goal.”
Regarding crypto, Bowman said that crypto activities may “pose significant risks to consumers, businesses, and potentially the larger financial system.” She also said that there is “dysfunction” in cryptomarkets, “with some crypto firms misrepresenting that they have deposit insurance.” She also mentioned “the collapse of certain stablecoins, and, most recently, the bankruptcy of [a cryptocurrency exchange platform].”
Bowman additionally discussed the Fed’s push for a real-time payments system. Since 2019, the Fed has been working to launch FedNow, a new faster payments system that will be available in the first half of 2023. According to Bowman, “FedNow will help transform the way payments are made through new direct services that enable consumers and businesses to make payments conveniently, in real time, on any day, and with immediate availability of funds for receivers.” As previously covered by a Buckley Special Alert, in June, the Fed issued a final rule on its FedNow instant-payments platform that offers more clarity on how the new service will work while essentially adopting the proposed rule. She also noted that FedNow will enable depository institutions of every size to provide “safe and efficient” instant payment services.
Regarding climate change, Bowman noted that the Fed views its role on climate “as a narrow focus on supervisory responsibilities and limited to our role in promoting a safe, sound and stable financial system.” She also noted that the Fed’s recent climate guidance only applies to banks with more than $100 billion in assets. Bowman also disclosed while “climate supervision effort is a new area of focus, it has been a longstanding supervisory requirement that banks manage their risks related to extreme weather events and other natural disasters that could disrupt operations or impact business lines.”
Additionally, Bowman provided a Community Reinvestment Act (CRA) update. She said that the CRA, which requires the Fed and other banking agencies to encourage banks to help meet the credit needs of their communities, “was last updated 25 years ago.” As previously covered by InfoBtytes, in May, the Fed, FDIC, and OCC issued a joint notice of proposed rulemaking on new regulations implementing the CRA to update how CRA activities qualify for consideration, where CRA activities are considered, and how CRA activities are evaluated. The CRA proposal, which she is fully supportive of, “reflects these industry changes, including recognizing internet and mobile banking services, it also attempts to provide clarity and consistency, and it could enhance access to credit for these low- and moderate-income communities
Agencies release 2021 CRA data
On December 15, members of the FFIEC with Community Reinvestment Act responsibilities (Federal Reserve Board, FDIC, and the OCC) released 2021 Community Reinvestment Act data on small business, small farm, and community development lending. (See also fact sheet here.) The 685 reporting banks reported that they originated or purchased 9.4 million small-business loans totaling $371 billion, with the total number of loans originated by reporting banks increasing by approximately 12.6 percent from 2020. The dollar amount of these small business loans decreased by 21 percent, the report found. Additionally, roughly 47.1 percent of the reported small business loan originations and 59.3 percent of reported farm loans were made to firms with less than $1 million in revenue. With respect to community development lending activity, the agencies reported that based on data compiled from 618 banks, lending activity decreased by 10.1 percent from the amount reported in 2020.
Agencies release annual CRA asset-size threshold adjustments
On December 19, the Federal Reserve Board, FDIC, and OCC announced (see here and here) joint annual adjustments to the CRA asset-size thresholds used to define “small bank” and “intermediate small bank,” which are not subject to the reporting requirements applicable to large banks unless they choose to be evaluated as one. A “small bank” is defined as an institution that, as of December 31 of either of the prior two calendar years, had less than $1.503 billion in assets. An “intermediate small” bank is defined as an institution that, as of December 31 of both of the prior two calendar years, had at least $376 million in assets, and as of December 31 of either of the past two calendar years, had less than $1.503 billion in assets. The joint final rule takes effect on January 1, 2023.
FDIC’s Gruenberg discusses CRA rulemaking
On November 2, FDIC acting Chairman Martin J. Gruenberg delivered remarks before the National Association of Affordable Housing Lenders to address ongoing Community Reinvestment Act (CRA) rulemaking, the results of the FDIC’s most recent National Survey of Unbanked and Underbanked Households, and challenges from nonbank payment services. In his remarks, Gruenberg referenced the pending notice of proposed rulemaking (NPR) on the CRA issued in May by the FDIC, OCC, and the Federal Reserve Board (collectively, “agencies”). As previously covered by InfoBytes, the NPR would update how CRA activities qualify for consideration, where CRA activities are considered, and how CRA activities are evaluated. Gruenberg stated that the agencies are committed to strengthening the law’s impact and “increasing transparency and predictability in its application,” and said the FDIC is currently reviewing approximately 1,000 unique comments received in response to the NPR. Gruenberg also discussed the results of the FDIC’s most recent National Survey of Unbanked and Underbanked Households. According to the biennial survey, an estimated 4.5 percent of U.S. households (representing 5.9 million households) lack a bank or credit union account, the lowest national unbanked rate since the FDIC survey began in 2009 (covered by InfoBytes here). Gruenberg noted that the survey found that the rate of unbanked households decreased consistently over the past decade, from 8.2 percent in 2011 to 4.5 percent in 2021. He also said that the survey indicated that 14.1 percent of households were underbanked, although demand for several nonbank products and services decreased. Gruenberg further commented that the survey revealed regulatory challenges in light of the array of options available to consumers, specifically nonbank online payment services. He explained that though “banked households were significantly more likely to use nonbank online payments services than unbanked households, the most common use cases were quite different between the two groups. Banked households most commonly reported that they used these services primarily to send or receive money from family or friends and to make online purchases, as a complement to a bank account. In contrast, the most common use cases among unbanked households revealed that they were using these services as they might otherwise have used bank accounts: paying bills, receiving income and as a vehicle to save or keep money safe.”