[Federal Register Volume 61, Number 201 (Wednesday, October 16, 1996)]
[Rules and Regulations]
[Pages 53827-53830]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-26407]



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  Federal Register / Vol. 61, No. 201 / Wednesday, October 16, 1996 / 
Rules and Regulations  

[[Page 53827]]



FEDERAL RESERVE SYSTEM

5 CFR Chapter LVIII

12 CFR Part 264

[Docket No. R-0900]
RIN 3209-AA15


Supplemental Standards of Ethical Conduct for Employees of the 
Board of Governors of the Federal Reserve System

AGENCY: Board of Governors of the Federal Reserve System (Board).

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: The Board of Governors of the Federal Reserve System, with the 
concurrence of the Office of Government Ethics (OGE), is issuing a 
final rule establishing uniform standards of ethical conduct for 
employees of the Board to supplement the Standards of Ethical Conduct 
for Employees of the Executive Branch issued by OGE. The regulation is 
a necessary supplement to the Executive Branch-wide Standards because 
it addresses ethical issues unique to the Board, establishing rules 
relating to: financial interests and transactions; borrowing and 
extensions of credit; employment relationships of immediate family 
members; and outside employment. The Board is also replacing its old 
employee conduct regulation with a residual cross-reference to the new 
provisions.

EFFECTIVE DATE: November 1, 1996.

FOR FURTHER INFORMATION CONTACT: Cary Williams, Managing Senior 
Counsel, Legal Division, Board of Governors of the Federal Reserve 
System, telephone (202) 452-3295, FAX (202) 452-3101. For the hearing 
impaired only, Telecommunications Device for the Deaf (TDD), Dorothea 
Thompson (202) 452-3544.

SUPPLEMENTARY INFORMATION:

I. Background

    On August 7, 1992, OGE published the Standards of Ethical Conduct 
for Employees in the Executive Branch. See 57 FR 35006-35067, as 
corrected at 57 FR 48557, 57 FR 52583 and 60 FR 51667, and amended at 
61 FR 41162-41164 (as corrected at 61 FR 48733) and 61 FR 50689-50691, 
with additional grace period extensions at 59 FR 4779-4780, 60 FR 6390-
6391, 60 FR 66857-66858, and 61 FR 40950-40952. The Executive Branch-
wide Standards are now codified at 5 CFR part 2635. Effective February 
3, 1993, they established uniform ethical conduct standards applicable 
to all executive branch personnel.
    With the concurrence of OGE, 5 CFR 2635.105 authorizes executive 
agencies to publish agency-specific supplemental regulations necessary 
to implement their respective ethics programs. On December 19, 1995, 
the Board, with OGE's concurrence, published for comment a proposed 
rule to establish supplemental standards of ethical conduct for Board 
employees (60 FR 65249-65254). The Board, with OGE's concurrence 
determined that the proposed supplemental regulations were necessary to 
implement the Board's ethics program successfully, in light of the 
Board's unique programs and operations.
    The proposed rule prescribed a 60-day comment period and invited 
comments from all interested parties. The Board received no comments 
but has made two modifications to the rule as proposed in adopting this 
final rule, with OGE concurrence. The first modification affects 
Sec. 6801.103(d). Section 6801.103(a) prohibits a Board employee and 
his or her spouse or minor child from owning or controlling any debt or 
equity interest in a depository institution or its affiliates or of a 
primary government securities dealer or its affiliates. Sections 
6801.103(b) and (c) provide limited exceptions to this prohibition for 
interests in certain nonbanking holding companies and their affiliates 
and for interests for which a waiver is issued. Paragraph (d) requires 
employees to consult with the Designated Agency Ethics Official (DAEO) 
concerning the need for recusal as a result of retaining an interest 
held due to an exception or a waiver. The proposed rule provided that 
such consultation would be necessary if the interest was in a ``holding 
company.'' In fact, limiting the scope of the provision in this way was 
unintentional, as the employee should consult with the DAEO regarding 
recusal if an otherwise prohibited interest is held in a bank or other 
entity, not just in a holding company. For this reason, the term 
``holding company'' in Sec. 6801.103(d) of the proposed rule has been 
replaced with the term ``entity'' in the final rule.
    The second modification affects Sec. 6801.108. Proposed 
Sec. 6801.108(a) would have required a supervisory employee who had 
knowledge that a member of his or her immediate family was employed by 
a depository institution to ``report such employment to his or her 
supervisor and the Ethics Office within thirty days of the commencement 
of the supervisory employee's employment at the Board or promptly upon 
learning of the employment relationship.'' The Board has since 
concluded that imposing such a reporting requirement on supervisory 
employees is unnecessary. Supervisory employees will be asked to 
provide certain information about their credit relationships on an 
annual disclosure form, and a space will be provided on this form for 
employees to disclose information about their immediate family members' 
employment by depository institutions. It is felt that this level of 
reporting is sufficient to serve the purpose of notifying supervisors 
of a possible need for disqualification. Section 6801.108(b) in the 
proposed regulation requiring a supervisory employee's disqualification 
from a matter involving a depository institution that employs a member 
of his or her immediate family has been renumbered and is now 
Sec. 6801.108. Otherwise, it remains unchanged.

II. Repeal of the Board's Regulations on Employee Responsibilities 
and Conduct

    The Board is also repealing its regulations on the Responsibilities 
and Conduct of Board Employees, 12 CFR part 264, and adding a residual 
cross-reference to the new provisions.

III. Matters of Regulatory Procedure

Administrative Procedure Act

    The Board has found good cause pursuant to 5 U.S.C. 553(d)(3) for 
waiving, as unnecessary and contrary to

[[Page 53828]]

the public interest, the 30-day delayed effective date requirement as 
to this final rule. The reason for this determination is that the 
Board's old ethics rules regarding outside employment and prohibited 
financial interests will no longer be effective after November 1, 1996 
under OGE's latest grace period extension. It is important to the 
Board's ethics program that the new part 6801 supplemental standards 
regulation take effect before that expiration date. In addition, this 
rulemaking is related to Board management and personnel.

Regulatory Flexibility Act

    The Board has determined under the Regulatory Flexibility Act (5 
U.S.C. chapter 6) that this regulation will not have a significant 
economic impact on a substantial number of small entities because it 
primarily affects Board employees and their families.

Paperwork Reduction Act

    The Board has determined that the Paperwork Reduction Act (44 
U.S.C. chapter 35) does not apply because this regulation does not 
contain any information collection requirements that require the 
approval of the Office of Management and Budget.

List of Subjects

5 CFR Part 6801

    Conflict of interests, Government employees.

12 CFR Part 264

    Conflict of interests, Federal Reserve System.

    Dated: October 4, 1996.
William W. Wiles,
Secretary, Board of Governors of the Federal Reserve System.

    Approved: October 4, 1996.
Stephen D. Potts,
Director, Office of Government Ethics.

    For the reasons set forth in the preamble, the Board, with the 
concurrence with the Office of Government Ethics, is amending title 5 
and chapter II of title 12 of the Code of Federal Regulations as 
follows:

TITLE 5--[AMENDED]

    1. A new chapter LVIII, consisting of part 6801, is added to title 
5 of the Code of Federal Regulations to read as follows:

CHAPTER LVIII--BOARD OF GOVERNORS OF THE FEDERAL RESERVE SYSTEM

PART 6801--SUPPLEMENTAL STANDARDS OF ETHICAL CONDUCT FOR EMPLOYEES 
OF THE BOARD OF GOVERNORS OF THE FEDERAL RESERVE SYSTEM

Sec.
6801.101  Purpose.
6801.102  Definitions.
6801.103  Prohibited financial interests.
6801.104  Speculative dealings. [Reserved]
6801.105  Prohibition on preferential terms from regulated 
institutions.
6801.106  Prohibition on supervisory employees' seeking credit from 
institutions involved in work assignments.
6801.107  Disqualification of supervisory employees from matters 
involving lenders.
6801.108  Restrictions resulting from employment of family members.
6801.109  Prior approval for compensated outside employment.

    Authority: 5 U.S.C. 7301; 5 U.S.C. App. (Ethics in Government 
Act of 1978); 12 U.S.C. 244, 248; E.O. 12674, 54 FR 15159, 3 CFR, 
1989 Comp., p.215, as modified by E.O. 12731, 55 FR 42547, 3 CFR, 
1990 Comp., p.306; 5 CFR 2635.105, 2635.403(a), 2635.502, 2635.803.


Sec. 6801.101  Purpose.

    In accordance with 5 CFR 2635.105, the regulations in this part 
supplement the Standards of Ethical Conduct for Employees of the 
Executive Branch found at 5 CFR part 2635. They apply to members and 
other employees of the Board of Governors of the Federal Reserve System 
(``Board'').


Sec. 6801.102  Definitions.

    For purposes of this part:
    (a) Affiliate means any company that controls, is controlled by, or 
is under common corporate control with another company.
    (b) (1) Debt or equity interest includes secured and unsecured 
bonds, debentures, notes, securitized assets, commercial paper, and 
preferred and common stock. The term encompasses both current and 
contingent ownership interests therein; any such beneficial or legal 
interest derived from a trust; any right to acquire or dispose of any 
long or short position in debt or equity interests; any interests 
convertible into debt or equity interests; and any options, rights, 
warrants, puts, calls, straddles, and derivatives with respect thereto.
    (2) Debt or equity interest does not include deposits; credit union 
shares; any future interest created by someone other than the employee, 
his or her spouse, or dependent; or any right as a beneficiary of an 
estate that has not been settled.
    (c) Dependent child means an employee's son, daughter, stepson, or 
stepdaughter if:
    (1) Unmarried, under the age of 21, and living in the employee's 
household; or
    (2) Claimed as a ``dependent'' on the employee's income tax return.
    (d) Depository institution means a bank, trust company, thrift 
institution, or any institution that accepts deposits, including a bank 
chartered under the laws of a foreign country.
    (e) Employee means an officer or employee of the Board, including a 
Board member. It does not include a special Government employee.
    (f) Primary government securities dealer means a firm with which 
the Federal Reserve conducts its open market operations.
    (g) Supervisory employee means an employee who is a member of the 
professional staff at the Board with responsibilities in the area of 
banking supervision and regulation.


Sec. 6801.103  Prohibited financial interests.

    (a) Prohibited interests. Except as permitted by this section, an 
employee, or an employee's spouse or minor child, shall not own or 
control, directly or indirectly, any debt or equity interest in:
    (1) A depository institution or any of its affiliates; or
    (2) A primary government securities dealer or any of its 
affiliates.
    (b) Exceptions. The prohibition in paragraph (a) of this section 
does not apply to the ownership or control of a debt or equity interest 
in the following:
    (1) Nonbanking holding companies. A publicly traded holding company 
that:
    (i) Owns a bank and either the holding company or the bank is 
exempt under the Bank Holding Company Act of 1956, 12 U.S.C. 1841 et 
seq., (for example, a credit card bank, a nonbank bank or a 
grandfathered bank holding company), and the holding company's 
predominant activity is not the ownership or operation of banks and 
thrifts;
    (ii) Owns a thrift and its predominant activity is not the 
ownership or operation of banks and thrifts; or
    (iii) Owns a primary government securities dealer and its 
predominant activity is not the ownership or operation of banks, 
thrifts or securities firms.
    (2) Mutual funds. A publicly traded or publicly available mutual 
fund or other collective investment fund if:
    (i) The fund does not have a stated policy of concentration in the 
financial services industry; and

[[Page 53829]]

    (ii) Neither the employee nor the employee's spouse exercises or 
has the ability to exercise control over the financial interests held 
by the fund or their selection.
    (3) Pension plans. A widely held, diversified pension or other 
retirement fund that is administered by an independent trustee.
    (c) Waivers. The Board's Designated Agency Ethics Official, in 
consultation with Division management, may grant a written waiver 
permitting the employee to own or control a debt or equity interest 
prohibited by paragraph (a) of this section if:
    (1) Extenuating circumstances exist, such as that ownership or 
control was acquired:
    (i) Through inheritance, gift, merger, acquisition, or other change 
in corporate structure, or otherwise without specific intent on the 
part of the employee, spouse, or minor child to acquire the debt or 
equity interest; or
    (ii) By an employee's spouse as part of a compensation package in 
connection with the spouse's employment or prior to marriage to the 
employee;
    (2) The employee makes a prompt and complete written disclosure of 
the interest;
    (3) The employee's disqualification from participating in any 
particular matter having a direct and predictable effect on the 
institution or any of its affiliates does not unduly interfere with the 
full performance of the employee's duties; and
    (4) Granting the waiver would be consistent with Division policy.
    (d) Disqualification. If an employee or an employee's spouse or 
minor child holds an interest in an entity under paragraph (b)(1) or 
(c) of this section, the employee must consult the Designated Agency 
Ethics Official in order to determine whether the employee must be 
disqualified from participating in any particular matter involving that 
entity or affiliate under the conflicts of interest rules of the Office 
of Government Ethics.


Sec. 6801.104  Speculative dealings. [Reserved]


Sec. 6801.105  Prohibition on preferential terms from regulated 
institutions.

    An employee may not accept a loan from, or enter into any other 
financial relationship with, an institution regulated by the Board, if 
the loan or financial relationship is governed by terms more favorable 
than would be available in like circumstances to members of the public.


Sec. 6801.106  Prohibition on supervisory employees' seeking credit 
from institutions involved in work assignments.

    (a) Prohibition on supervisory employee's seeking credit. (1) A 
supervisory employee may not, on his or her own behalf, or on behalf of 
his or her spouse or child or anyone else (including any business or 
nonprofit organization), seek or accept credit from, or renew or 
renegotiate credit with, a depository institution or any of its 
affiliates if the institution or affiliate is a party to an 
application, enforcement action, investigation, or other particular 
matter involving specific parties pending before the Board and:
    (i) The supervisory employee is assigned to the matter; or
    (ii) The supervisory employee is aware of the pendency of the 
matter and knows that he or she will participate in the matter by 
action, advice or recommendation.
    (2) The prohibition in paragraph (a)(1) of this section also 
applies for three months after the supervisory employee's participation 
in the matter has ended.
    (b) Credit sought by spouse and other related persons. A 
supervisory employee must disqualify himself or herself from 
participating (by action, advice or recommendation) in any application, 
enforcement action, investigation or other particular matter involving 
specific parties to which a depository institution or any of its 
affiliates is a party as soon as the supervisory employee learns that 
any of the following related persons are seeking or have sought or 
accepted credit from, or have renewed or renegotiated credit with, the 
depository institution or any of its affiliates while the matter is 
pending before the Board:
    (1) The employee's spouse or dependent child;
    (2) A company or business if the employee or the employee's spouse 
or dependent child owns or controls more than 10 percent of its equity; 
or
    (3) A partnership if the employee, or the employee's spouse or 
dependent child is a general partner.
    (c) Exception. The prohibition in paragraph (a) of this section and 
the disqualification requirement in paragraph (b) of this section do 
not apply with respect to credit obtained through the use of a credit 
card or overdraft protection on terms and conditions available to the 
public.
    (d) Waivers. The Board's Designated Agency Ethics Official, after 
consulting with the relevant division director, may grant a written 
waiver from the prohibition in paragraph (a) of this section, or the 
disqualification requirement in paragraph (b) of this section, based on 
a determination that participation in matters otherwise prohibited by 
this section would not create an appearance of loss of impartiality or 
use of public office for private gain, and would not otherwise be 
inconsistent with the Office of Government Ethics' Standards of Ethical 
Conduct for Employees of the Executive Branch (5 CFR part 2635) or 
prohibited by law.


Sec. 6801.107  Disqualification of supervisory employees from matters 
involving lenders.

    (a) Disqualification required. A supervisory employee may not 
participate by action, advice or recommendation in any application, 
enforcement action, investigation, or other particular matter involving 
specific parties to which a depository institution or its affiliate is 
a party if any of the following are indebted to the depository 
institution or any of its affiliates:
    (1) The employee;
    (2) The spouse or dependent child of the employee;
    (3) A company or business if the employee or the employee's spouse 
or dependent child owns or controls more than 10 percent of its equity; 
or
    (4) A partnership if the employee or the employee's spouse or 
dependent child is a general partner.
    (b) Exceptions--(1) Consumer credit on nonpreferential terms. 
Disqualification of a supervisory employee is not required by paragraph 
(a) of this section for the following types of indebtedness if payment 
on the indebtedness is current and the indebtedness is on terms and 
conditions offered to the public:
    (i) Credit extended through the use of a credit card;
    (ii) Credit extended through use of an overdraft protection line;
    (iii) Amortizing consumer credit (e.g., home mortgage loans, 
automobile loans); and
    (iv) Credit extended under home equity lines of credit.
    (2) Indebtedness of a spouse or dependent child. Disqualification 
is not required with respect to any indebtedness of the employee's 
spouse or dependent child, or a company, business or partnership in 
which the spouse or dependent child has an interest described in 
paragraphs (a)(3) and (a)(4) of this section, if:
    (i) The indebtedness represents the sole financial interest or 
responsibility of the spouse, child, company, business or partnership 
and is not derived from the employee's income, assets or activities; 
and
    (ii) The employee has no knowledge of the identity of the lender.

[[Page 53830]]

    (c) Waivers. The Board's Designated Agency Ethics Official, after 
consulting with the relevant Division director, may grant a written 
waiver from the disqualification requirement in paragraph (a) of this 
section using the authorization process set forth in the Office of 
Government Ethics' Standards of Ethical Conduct at 5 CFR 2635.502(d).


Sec. 6801.108  Restrictions resulting from employment of family 
members.

    A supervisory employee may not participate in any particular matter 
to which a depository institution or its affiliate is a party if the 
depository institution or affiliate employs his or her spouse, child, 
parent or sibling unless the supervising officer, with the concurrence 
of the Board's Designated Agency Ethics Official, has authorized the 
employee to participate in the matter using the authorization process 
set forth in the Office of Government Ethics' Standards of Ethical 
Conduct at 5 CFR 2635.502(d).


Sec. 6801.109  Prior approval for compensated outside employment.

    (a) Approval requirement. An employee shall obtain prior written 
approval from his or her Division director (or the Division director's 
designee) and the concurrence of the Board's Designated Agency Ethics 
Official before engaging in compensated outside employment.
    (b) Standard for approval. Approval will be granted unless a 
determination is made that the prospective outside employment is 
expected to involve conduct prohibited by statute or Federal 
regulation, including 5 CFR part 2635 and this part.
    (c) Definition of employment. For purposes of this section, the 
term compensated outside employment means any form of compensated non-
Federal employment or business relationship involving the provision of 
personal services by the employee. It includes, but is not limited to, 
personal services as an officer, director, employee, agent, attorney, 
consultant, contractor, general partner, trustee, teacher or speaker.

TITLE 12--BANKS AND BANKING

CHAPTER II--FEDERAL RESERVE SYSTEM

    2. 12 CFR part 264 is revised to read as follows:

PART 264--EMPLOYEE RESPONSIBILITIES AND CONDUCT

    Authority: 5 U.S.C. 7301; 12 U.S.C. 244.


Sec. 264.101  Cross-reference to employees' ethical conduct standards 
and financial disclosure regulations.

    Employees of the Board of Governors of the Federal Reserve System 
(Board) are subject to the executive branch-wide standards of ethical 
conduct at 5 CFR part 2635 and the Board's regulation at 5 CFR part 
6801, which supplements the executive branch-wide standards, and the 
executive branch-wide financial disclosure regulation at 5 CFR part 
2634.

[FR Doc. 96-26407 Filed 10-15-96; 8:45 am]
BILLING CODE 6210-01-P