[Federal Register Volume 79, Number 205 (Thursday, October 23, 2014)]
[Notices]
[Pages 63458-63461]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-25202]
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SECURITIES AND EXCHANGE COMMISSION
[Release No. 34-73388; File No. SR-FICC-2014-801]
Self-Regulatory Organizations; The Fixed Income Clearing
Corporation; Notice of No Objection to Advance Notice Filing, as
Amended by Amendment No. 1, Concerning the Government Security
Division's Inclusion of GCF Repo[supreg] Positions in Its Intraday
Participant Clearing Fund Requirement Calculation, and Its Hourly
Internal Surveillance Cycles
October 17, 2014.
On January 10, 2014, The Fixed Income Clearing Corporation
(``FICC'') filed with the Securities and Exchange Commission
(``Commission'') advance notice SR-FICC-2014-801 (``Advance Notice'')
pursuant to Section 806(e)(1)(A) of the Payment, Clearing, and
Settlement Supervision Act of 2010 (``Payment, Clearing and Settlement
Supervision Act'' or ``Title VIII'') \1\ and Rule 19b-4(n)(1)(i) of the
Securities Exchange Act of 1934 (``Act'').\2\ The Advance Notice was
published for comment in the Federal Register on February 10, 2014.\3\
On March 10, 2014, the Commission staff sent FICC a letter, pursuant to
Section 806(e)(1)(D) \4\ and Commission authorization, requesting
additional information regarding this advance notice.\5\ FICC filed an
amendment to the Advance Notice on August 11, 2014, which was published
[[Page 63459]]
for comment in the Federal Register on September, 26, 2014.\6\ The
Commission received no comments on the Advance Notice. This publication
serves as a notice of no objection to the changes proposed in the
Advance Notice.
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\1\ 12 U.S.C. 5465(e)(1)(A). The Financial Stability Oversight
Council designated FICC a systemically important financial market
utility on July 18, 2012. See Financial Stability Oversight Council
2012 Annual Report, Appendix A, http://www.treasury.gov/initiatives/fsoc/Documents/2012%20Annual%20Report.pdf. Therefore, FICC is
required to comply with Title VIII of the Payment, Clearing and
Settlement Supervision Act.
\2\ 17 CFR 240.19b-4(n)(1)(i).
\3\ Securities Exchange Act Release No. 71469 (Feb. 4, 2014), 79
FR 7722 (Feb. 10, 2014) (SR-FICC-2014-801).
\4\ 12 U.S.C. 5465(e)(1)(D).
\5\ The Commission received a response to this request for
additional information August 19, 2014, at which time a 60 day
review period for the Advance Notice began pursuant to Section
806(e)(1)(G). 12 U.S.C. 5465(e)(1)(G).
\6\ Securities Exchange Act Release No. 73187 (September 23), 79
FR 58007 (September 26, 2014) (SR-FICC-2014-801).
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I. Description of the Advance Notice
The Advance Notice concerns a proposal by FICC's Government
Securities Division (``GSD'') to include GCF Repo[supreg] \7\ positions
in its intraday (i.e., noon) participant Clearing Fund requirement
calculation (``CFR''), and its hourly internal surveillance cycles.
FICC intends for this enhancement to align GSD's risk management
calculations and monitoring with the changes that have been implemented
to the tri-party infrastructure by the Tri-Party Repo Infrastructure
Reform Task Force (``Task Force'') \8\ specifically, with respect to
locking up of GCF Repo[supreg] collateral until 3:30 p.m. (ET) rather
than 7:30 a.m. (ET). The Advance Notice also provides FICC the ability
to account for an altered intraday risk profile of members as a result
of a member's substitution of cash for securities that were used as
collateral for a GCF Repo[supreg] position the prior day (``Cash
Substitution'') or a clearing bank unwind of the cash lending side of
the transaction for an inter-bank GCF Repo[supreg] transaction at 7:30
a.m. (ET) (``Early Unwind'') by implementing an Early Unwind Intraday
Charge (``EUIC'') where appropriate.
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\7\ The GCF Repo[supreg] service enables dealers to trade
general collateral repos, based on rate, term, and underlying
product, throughout the day without requiring intra-day, trade-for-
trade settlement on a Deliver-versus-Payment (``DVP'') basis. The
service fosters a highly liquid market for securities financing.
\8\ The Task Force was formed in September 2009 under the
auspices of the Payments Risk Committee, a private-sector body
sponsored by the Federal Reserve Bank of New York. The Task Force's
goal is to enhance the repo market's ability to navigate stressed
market conditions by implementing changes that help better safeguard
the market. FICC has worked in close collaboration with the Task
Force on its reform initiatives.
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(i) Historical Background
Prior to the changes implemented by the Task Force, the underlying
collateral pertaining to the GCF Repo[supreg] positions was locked up
each afternoon (approximately 4:30 p.m. (ET)) and unwound at the
beginning of the next business day (approximately 7:30 a.m. (ET)).
Thus, the GCF Repo[supreg] positions were included in the end of day
(``EOD'') CFR calculations but not included in FICC's noon intraday CFR
calculations. Because the GCF Repo[supreg] positions were not included
in FICC's noon intraday CFR calculation, the noon calculation could
result in an under-margined condition relative to the same EOD \9\ CFR.
Thus, FICC imposed a ``higher-of'' standard on GCF Repo[supreg]
participants, whereby their noon intraday CFR was the higher of the
actual noon intraday CFR calculation or its prior EOD CFR
calculation.\10\
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\9\ As used herein ``prior EOD'' refers to the end of day cycle
immediately preceding the current noon intraday cycle and ``same
EOD'' refers to the cycle immediately subsequent to the current noon
intraday cycle.
\10\ For example, in the extreme case where a participant's
portfolio was comprised entirely of GCF Repo[supreg] positions, at
each EOD margining cycle FICC could calculate a substantial margin
requirement which had to be met by 9:30 a.m. (ET) the next morning.
But at each intraday margining cycle, FICC would calculate a
negligible margin requirement (because GCF Repo[supreg] positions
were not included at intraday). This would allow the participant to
withdraw substantially all its margin collateral before the same
EOD. In this case, if the participant defaulted overnight, FICC
would hold almost no margin collateral from the participant while
having the exposure of liquidating losses on a substantial GCF
Repo[supreg] portfolio. To prevent this potential under-margin
condition, FICC imposed the ``higher of'' standard.
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With the advent of the Task Force's reform, which resulted in
moving the unwind from 7:30 a.m. (ET) to 3:30 p.m. (ET), details on the
underlying collateral pertaining to GCF Repo[supreg] positions are now
received from the clearing banks on an hourly basis and can be
incorporated into the noon intraday CFR calculation. Substitutions of
underlying collateral are now permitted between 8:30 a.m. (ET) and 3:30
p.m. (ET).\11\
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\11\ A key aspect of the GCF Repo[supreg] service is to give the
repo side (cash borrower) the ability to retrieve its securities
during the business day and deliver those securities to meet a
delivery obligation. As a result, GCF Repo[supreg] was unwound in
the morning. With the Tri-Party Reform's change in the unwind from
7:30 a.m. (ET) to 3:30 p.m. (ET), participants now have access to
their securities during the day via collateral substitutions.
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(ii) Proposed Change
Because GCF Repo[supreg] collateral remains locked-up until 3:30
p.m. (ET), FICC proposed incorporating the underlying collateral
pertaining to GCF Repo[supreg] positions in its noon intraday
participant CFR calculation, and its hourly internal surveillance
cycles.\12\ This enhancement is intended to align FICC's risk
management calculations and monitoring with the changes that have been
implemented to the tri-party infrastructure by the Task Force.
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\12\ In the ordinary course of business, the ``higher of''
standard will not apply. However, this standard will remain
available in the event that one or both clearing banks do not
provide intraday underlying collateral pertaining to the GCF
Repo[supreg] position data because such clearing bank, as
applicable, is unable to provide the data.
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In certain instances, Cash Substitutions, for repo and reverse repo
positions and the Early Unwind of interbank allocations for reverse
repo positions, could result in higher cash balances in the underlying
collateral pertaining to GCF Repo[supreg] positions at noon intraday
than the same EOD, and could present a potential under-margin condition
because cash collateral is not margined but the cash likely will be
replaced by securities in the next GCF Repo[supreg] allocation of
collateral. The under-margin condition will exist overnight because the
VaR on the GCF Repo[supreg] collateral in the same EOD cycle will not
be calculated until after Fedwire is closed, thus precluding members
from satisfying margin deficits until the morning of the next business
day.
As a result, FICC amended its proposal \13\ to include the EUIC to
account for the altered intraday risk profile created by Cash
Substitutions and Early Unwinds.\14\ In order to determine whether an
EUIC should be applied, FICC will take the following steps:
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\13\ See Securities Exchange Act Release No. 73187 (September
23), 79 FR 58007 (September 26, 2014) (SR-FICC-2014-801).
\14\ If a member is assessed an EUIC that is deemed unnecessary,
FICC management will have the discretion to waive such charge.
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1. At noon, FICC will compare the prior EOD VaR component of the
CFR calculation with the current day's noon intraday VaR component of
the CFR calculation.
2. If the current day's noon intraday VaR calculation is equal to
or higher than the prior EOD's VaR calculation then GSD will not apply
an EUIC. If however, the current day's noon calculation is lower, then
FICC will proceed to the step 3 below.
3. FICC will review the GCF Repo[supreg] participant's DVP and GCF
Repo[supreg] portfolio to determine whether the reduction in the noon
calculation may be attributable to the GCF Repo[supreg] participant's
intraday cash substitutions or early unwind of interbank allocations.
If so, then FICC will apply the EUIC.
4. At the participant level, the EUIC \15\ will be the lesser of
(i) the net VaR decrease that may be deemed to be attributable to
either Cash Substitutions
[[Page 63460]]
and/or Early Unwinds of interbank allocations or (ii) the prior EOD VaR
minus the noon intraday VaR.\16\
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\15\ The EUIC will be included in the noon intraday participant
CFR, but not the same EOD CFR. This is because the risk associated
with cash lockups exists at intraday, that is, at any time before at
EOD. At EOD in the normal course of business, GCF Repo[supreg]
positions consist of 100% eligible non-cash securities. GCF
Repo[supreg] is used for overnight financing of securities
inventory. Absent extraordinary circumstances, participants do not
use cash to collateralized overnight cash loans. Cash Substitutions
occur at intraday as participants substitute in cash to withdraw
securities they need for intraday deliveries.
\16\ In the event that cash substitutions or early unwind of
interbank allocations impacts the CFR, the prior end of day CFR is
used as a proxy for the same end of day CFR for the portion of the
portfolio that is impacted by such cash substitutions or early
unwind of interbank allocations. The EUIC is designed to prevent the
impact of cash substitutions and early unwind of interbank
allocations from unduly reducing noon intraday CFR relative to the
prior EOD CFR calculation, thus the EUIC will not increase the noon
intraday CFR above the prior EOD CFR calculation. (But the noon
intraday CFR calculation exclusive of EUIC could be higher than the
prior EOD CFR calculation.)
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The EUIC for Cash Substitutions will apply to both the repo side (cash
borrower) and the reverse repo side (cash lender) of the transaction
and the EUIC for the Early Unwinds of interbank allocations will apply
to the reverse repo side only. The EUIC applies to the reverse repo
side because although that side does not initiate the Cash Substitution
or the Early Unwind of interbank allocations, these events change the
reverse repo participants' risk profile and as a result, their noon
intraday CFR could be unduly reduced. The EUIC for the Early Unwind of
interbank allocations will only apply to the reverse repo side (cash
lender) since it is only the reverse side whose lockup is unwound
early. The securities subject to the Early unwind are not returned to
the repo side (cash borrower) in connection with the early unwind of
interbank allocations. The Early Unwind of interbank allocations is
performed on the reverse repo side to ensure that the underlying
collateral is available to the repo side at its settlement bank. Cash
is returned to the reverse repo side and thus unwound early. There is
no automatic unwind (return of securities) to the repo side. If the
repo side needs its securities before the 3:30 p.m. (ET) scheduled
unwind, it may perform a securities-for-securities substitution or a
cash-for-securities substitution (in which case it may be subject to
the EUIC).
II. Discussion and Commission Findings
Although the Payment, Clearing and Settlement Supervision Act does
not specify a standard of review for an advance notice, the Commission
believes its stated purpose is instructive.\17\ The stated purpose is
to mitigate systemic risk in the financial system and promote financial
stability by, among other things, promoting uniform risk management
standards for systemically-important financial market utilities
(``FMU'') and strengthening the liquidity of systemically important
FMUs.\18\
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\17\ See 12 U.S.C. 5461(b).
\18\ Id.
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Section 805(a)(2) of the Payment, Clearing, and Settlement
Supervision Act \19\ authorizes the Commission to prescribe risk
management standards for the payment, clearing, and settlement
activities of designated clearing entities and financial institutions
engaged in designated activities for which it is the supervisory agency
or the appropriate financial regulator. Section 805(b) of the Payment,
Clearing, and Settlement Supervision Act \20\ states that the
objectives and principles for the risk management standards prescribed
under Section 805(a) shall be to:
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\19\ 12 U.S.C. 5464(a)(2).
\20\ 12 U.S.C. 5464(b).
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Promote robust risk management;
promote safety and soundness;
reduce systemic risks; and
support the stability of the broader financial system.
The Commission has adopted risk management standards under Section
805(a)(2) of the Payment, Clearing and Settlement Supervision Act \21\
(``Clearing Agency Standards'').\22\ The Clearing Agency Standards
became effective on January 2, 2013 and require registered clearing
agencies that perform central counterparty (``CCP'') services to
establish, implement, maintain, and enforce written policies and
procedures that are reasonably designed to meet certain minimum
requirements for their operations and risk management practices on an
ongoing basis.\23\ As such, it is appropriate for the Commission to
review advance notices against these Clearing Agency Standards and the
objectives and principles of these risk management standards as
described in Section 805(b) of the Payment, Clearing and Settlement
Supervision Act.\24\
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\21\ 12 U.S.C. 5464(a)(2).
\22\ Rule 17Ad-22, 17 CFR 240.17Ad-22. Exchange Act Release No.
68080 (October 22, 2012), 77 FR 66220 (November 2, 2012) (S7-08-11).
\23\ The Clearing Agency Standards are substantially similar to
the risk management standards established by the Board of Governors
of the Federal Reserve System (``Federal Reserve'') governing the
operations of designated DFMUs that are not clearing entities and
financial institutions engaged in designated activities for which
the Commission or the Commodity Futures Trading Commission is the
Supervisory Agency. See Financial Market Utilities, 77 FR 45907
(August 2, 2012).
\24\ 12 U.S.C. 5464(b).
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Because it was based on the previous pre-reform unwinding process
described above, FICC's intraday risk calculation does not currently
capture the GCF Repo[supreg] positions on an intraday basis. The change
to incorporate the underlying collateral pertaining to the GCF
Repo[supreg] positions in its noon intraday participant CFR
calculation, and its hourly internal surveillance cycles, should
improve FICC's risk management by providing a more accurate and timely
view of member positions and their corresponding exposures and may help
ensure that FICC collects sufficient clearing fund deposits to
safeguard itself in the event of a member default. Further,
incorporating GCF Repo[supreg] positions into intraday participant CFR
calculations and hourly surveillance cycles may better reflect the
actual risk in its members' portfolios. Moreover, the inclusion of the
EUIC may allow FICC to use more accurate position information in its
margin calculations and mitigate the effects of Cash Substitutions and
Early Unwinds that occur during the intraday period.
The Commission believes that including GCF Repo[supreg] positions
in FICC's intraday participant clearing fund calculations and hourly
internal surveillance meets the objectives and principles for the risk
management standards prescribed under Section 805(a). The inclusion of
GCF[supreg] Repo positions may provide FICC with a more accurate view
of members' intraday exposures and more accurate risk profiles.
Additionally, the EUIC allows FICC to account for risks posed by
intraday VaR fluctuations that are caused by Cash Substitutions and
Early Unwinds and may allow FICC to better manage intraday risk. Thus,
the proposal promotes robust risk management and safety and soundness
of FICC's risk management systems, reduces systemic risk, and supports
the stability of the broader financial system.\25\
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\25\ 12 U.S.C. 5464(b).
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The proposed change is also consistent with Rule 17Ad-22 \26\ of
the Clearing Agency Standards which establishes the minimum
requirements regarding how registered clearing agencies must maintain
effective risk management procedures and controls. Specifically, Rule
17Ad-22(b)(1) requires a clearing agency that performs CCP services to
establish, implement, maintain and enforce written policies reasonably
designed to measure its credit exposures at least daily and to limit
exposures to potential losses from defaults by participants under
normal market conditions so that the operations of the clearing agency
should not be disrupt and non-defaulting participants would not be
exposed to losses that they cannot anticipate or control.\27\ Rule
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17Ad-22(b)(2) requires FICC to establish, implement, maintain and
enforce written policies and procedures reasonably designed to use
margin requirements to limit its credit exposures to participants under
normal market conditions and use risk-based models and parameters to
set margin requirements.\28\ To these ends, the change may provide FICC
with a more accurate measurement of daily credit exposure using a risk-
based model and is designed to address exposures that may occur from
intraday activity. In sum, FICC's more accurate and timely calculations
around and monitoring of GCF Repo[supreg] activity may better enable
FICC to respond in the event that a member defaults.
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\26\ 17 CFR 240.17Ad-22.
\27\ 17 CFR 240.17Ad-22(b)(1).
\28\ 17 CFR 240.17Ad-22(b)(2).
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III. Conclusion
It is therefore noticed, pursuant to Section 806(e)(1)(I) of the
Payment, Clearing and Settlement Supervision Act,\29\ that the
Commission does not object to advance notice proposal (SR-FICC2014-801)
and that FICC is authorized to implement the proposal as of the date of
this notice or the date of an order by the Commission approving a
proposed rule change that reflects rule changes that are consistent
with this advance notice proposal (SR-FICC-2014-01), whichever is
later.
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\29\ 12 U.S.C. 5465(e)(1)(I).
By the Commission.
Kevin O'Neill,
Deputy Secretary.
[FR Doc. 2014-25202 Filed 10-22-14; 8:45 am]
BILLING CODE 8011-01-P