[Federal Register Volume 64, Number 144 (Wednesday, July 28, 1999)]
[Proposed Rules]
[Pages 40787-40789]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-19253]


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NATIONAL CREDIT UNION ADMINISTRATION

12 CFR Part 704


Corporate Credit Unions

AGENCY: National Credit Union Administration (NCUA).

ACTION: Advance notice of proposed rulemaking.

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SUMMARY: NCUA requests public comment on revisions to the rule 
governing corporate credit unions (corporates). As part of its 
regulatory review process, NCUA has identified provisions for further 
clarification or revision. Comments from interested parties on these 
issues will assist NCUA in its regulatory review process.

DATES: Comments must be received on or before November 26, 1999.

ADDRESSES: Direct comments to Becky Baker, Secretary of the Board. Mail 
or hand-deliver comments to: National Credit Union Administration, 1775 
Duke Street, Alexandria, Virginia 22314-3428. You may fax comments to 
(703) 518-6319. Please send comments by one method only.

FOR FURTHER INFORMATION CONTACT: Robert F. Schafer, Director, Office of 
Corporate Credit Unions, at the above address or telephone (703) 518-
6640; or Mary Rupp, Staff Attorney, Office of General Counsel, at the 
above address or telephone (703) 518-6540.

SUPPLEMENTARY INFORMATION:

A. Background

    On March 7, 1997, NCUA issued a final rule that completely revised 
part 704 of its regulations, the provisions governing corporates. 62 FR 
12929 (March 19, 1997). The final rule noted that ``[a] number of 
commenters strongly suggested that NCUA review the corporate regulation 
on an annual basis.'' Id. NCUA agreed that a periodic review was 
necessary, but that the frequency should be determined by circumstances 
and need. The NCUA Board directed the Office of Corporate Credit Unions 
(OCCU) to present a report on the rule within 18 months of publication. 
When the final regulation's compliance date was extended from January 
1, 1998, to May 1, 1998, the completion date for the report to the NCUA 
Board was extended to provide adequate time to assess the impact of the 
rule.
    In February 1999, OCCU provided its report to the NCUA Board. The 
report identified the major areas of the rule for revision or 
clarification. The report was based on informal comments from 12 
corporates, the Association of Corporate Credit Unions, the National 
Association of State Credit Union Supervisors, OCCU staff, and Office 
of Investment Services staff.
    This advance notice of proposed rulemaking requests comment on 
several issues raised as a result of OCCU's 18 month review. While NCUA 
welcomes comment on other sections of Part 704 not addressed in this 
advance notice, a proposed rule will be issued providing another 
opportunity to provide comments on all sections of Part 704.

B. Specific Areas for Review

Section 704.2  Definitions

Asset-Backed Securities
    NCUA seeks comment on the definition of asset-backed security. 
There has been some confusion as to the types of securities that are 
permissible under the current, broad definition. For example, the 
definition does not specifically prohibit securities with foreign 
collateral. However, corporates are only permitted to make foreign 
investments if they have Part III Expanded Authority. NCUA is seeking 
recommendations on how to address this issue.
Membership Capital
    A number of issues have been raised regarding the various capital 
accounts in part 704. Membership capital has been the most utilized 
source of additional capital for corporates.
    The regulation allows for an adjustment period during which the 
membership capital account can be adjusted in relation to a specific 
measure. Although the regulation does not dictate the measure, many 
corporates utilize a member's asset size. NCUA seeks comment on whether 
the regulation should require a specific measure, such as, requiring 
the membership capital account to be adjusted in order to remain 
equivalent to at least one percent of the member credit union's assets 
as of December 31st of the prior year.
    Additionally, the regulation does not state the frequency of the 
adjustment

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period. NCUA staff believes that either an annual or semi-annual 
adjustment period is appropriate. There have been suggestions that a 
more frequent adjustment period (such as monthly or quarterly) would be 
more appropriate due to the often significant fluctuation in corporate 
assets over a short period of time. NCUA invites comment on whether the 
regulation should require specific allowable adjustment periods 
(annually, quarterly, monthly, daily) or if this should be left to the 
corporate to establish as long as the adjustment period is fully 
disclosed to the member when the account is opened.
    NCUA also seeks comment on whether a minimum capital level should 
be prescribed that, once reached, would prohibit readjusting downward 
an adjusted balance membership capital account.
Paid-In Capital
    NCUA believes that the credit union system is adequately 
capitalized. The highest concentration of capital currently rests with 
natural person credit unions, while corporate credit unions are 
somewhat less capitalized. The current regulation differentiates 
between member and nonmember paid-in capital by requiring nonmember 
paid-in capital be approved by NCUA. Should the nonmember paid-in 
capital requirements apply if the nonmember is a credit union? NCUA 
welcomes comments on the benefits or disadvantages of this proposal, 
how the process might best be implemented, and the treatment of such 
accounts under Generally Accepted Accounting Principles (GAAP).
    The current regulation provides that paid-in capital cannot exceed 
reserves and undivided earnings. NCUA seeks comment on whether this 
limitation should be eliminated or revised. If the limitation on paid-
in capital is eliminated, should the various regulatory limitations 
that are tied to reserves and undivided earnings (RUDE) and paid-in 
capital be revisited?
Unmatched Embedded Options
    Section 704.8(d)(2) requires corporates with unmatched embedded 
options in excess of 200 percent of reserves, undivided earnings, and 
paid-in capital to perform additional tests. NCUA believes a definition 
of unmatched embedded options may be necessary and welcomes comment on 
this issue.

Section 704.7  Lending

    Section 704.7(g) permits a corporate to enter into a loan 
participation agreement only with another corporate. NCUA seeks 
comments on the expansion of loan participation authority for 
corporates. Issues to be considered include: (1) should participation 
loans with entities other than corporates be permitted; (2) the impact 
of participation loans with entities other than corporates on a 
corporate's banker's bank exemption from the Federal Reserve Board's 
Regulation D reserve requirements; (3) the impact of loan 
participations on a corporate's liquidity position; (4) whether making 
participation loans should require corporates to establish additional 
reserves; (5) should corporates be allowed to participate in business 
and/or consumer loans; and (6) whether corporates have the expertise to 
underwrite and participate in business and consumer loans.

Section 704.12  Services

    NCUA requests comment on the advantages and disadvantages of 
eliminating this section of the regulation. If Sec. 704.12 is 
eliminated, as a result, defined fields of membership would also be 
eliminated for federal corporates. NCUA encourages commenters to 
address any concerns or benefits to the credit union system from such 
an action.
    A number of corporates have indicated the need for a clearer 
definition of what constitutes ``correspondent services.'' NCUA 
believes clarification is warranted, and encourages commenters to 
provide specific examples of appropriate correspondent services and 
definition terminology.

Section 704.15  Audit Requirements

    Statement of Auditing Standard (SAS) No. 70, Reports on the 
Processing of Transactions by Service Organizations, provides guidance: 
(1) on the factors an independent auditor should consider when auditing 
the financial statements of a corporate credit union that uses a 
service organization to process certain transactions; and (2) for 
independent service auditors who issue reports for a corporate credit 
union that functions as service organization for others. This report is 
primarily intended for the user organization's auditors.
    NCUA is seeking comment on a number of specific questions regarding 
requirements for SAS 70 reports under the latter situation noted above. 
Should a corporate credit union, when processing transactions for 
others as a service organization, be required to obtain a SAS 70 
report. NCUA is aware that user organization auditors, in seeking to 
comply with auditing standards, routinely appeal to the service 
organization to provide a SAS 70 report through its service auditor.
    If regulation requires a SAS 70 report, should it only apply to 
corporate credit unions above a particular asset size?
    Additionally, the Board seeks comment on the two types of SAS 70 
reports a service auditor can provide the corporate credit union that 
functions as a service organization processing transaction for others. 
These are: (1) a report on controls placed in operation; and (2) a 
report on controls placed in operation and tests of operating 
effectiveness. Generally, the service organization determines which 
type of engagement needs to be performed. Should the regulation specify 
which type of report the corporate must obtain?

Section 704.18  Fidelity Bond Coverage

    NCUA seeks public comment on whether fidelity bond coverage should 
be made optional for corporates. In lieu of a fidelity bond, what types 
of criteria (such as maintaining a specific capital level) should be 
utilized to determine appropriate protection exists for the corporate 
and its members?

Section 704.19  Wholesale Corporate Credit Unions

    NCUA questions the need for separate regulatory requirements for 
wholesale corporates. NCUA invites comment on whether there is a need 
for separate regulatory requirements for wholesale corporates and, if 
such a need exists, whether the existing regulatory requirements are 
appropriate.

Appendix B--Expanded Authorities and Requirements

    NCUA asks for comment on the existing investment authorities under 
each expanded authority section and recommendations for any additional 
investment powers. Any recommendations for additional investment 
authority should be consistent with the infrastructure and personnel 
expertise required by each of the four specific expanded authority 
levels.
    NCUA believes it is necessary to review the permissible minimum 
credit ratings allowed under each authority level. For example, Part I 
and II provide authority to acquire asset-backed securities (ABS) rated 
no lower than AA. NCUA seeks comment on the existing minimum credit 
ratings allowed for Part I, Part II, and Part III expanded authority 
levels.

Part III

    Part III authority allows corporates to make limited foreign 
investments.

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NCUA has been asked to expand the types of foreign investments that 
corporates with Part III authority can make. NCUA seeks comments on the 
advisability of allowing corporates with Part III expanded authority to 
invest specifically in foreign ABS and foreign corporate debt 
obligations. NCUA invites commenters to provide additional 
recommendations for foreign investments that should be considered for 
Part III corporates.

Part IV

    Part IV expanded authority allows corporates to engage in 
derivatives transactions. NCUA is cognizant that the derivative market 
is complex and seeks comment on the need for additional guidance in 
this area. Further, it has been proposed to allow corporates without 
Part IV authority to utilize derivatives as a means of risk reduction. 
This would be accomplished through a contractual arrangement with a 
corporate that has Part IV authority. NCUA invites commenters to 
address this proposal.

    By the National Credit Union Administration Board on July 22, 
1999.
Becky Baker,
Secretary of the Board.
[FR Doc. 99-19253 Filed 7-27-99; 8:45 am]
BILLING CODE 7535-01-U