[Federal Register Volume 73, Number 248 (Wednesday, December 24, 2008)]
[Notices]
[Pages 79127-79130]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-30628]


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FEDERAL RESERVE SYSTEM

[Docket No. OP-1346]


Policy on Payment System Risk; Daylight Overdraft Posting Rules

AGENCY: Board of Governors of the Federal Reserve System.

ACTION: Notice.

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SUMMARY: The Board has decided not to pursue at this time its proposal 
to change the posting time to 8:30 a.m. for commercial and government 
automated clearinghouse (ACH) debit transfers that are processed by the 
Federal Reserve Banks' (Reserve Banks) FedACH service. (All times are 
eastern time.) The proposal would have aligned the posting time for ACH 
debit transfers with the posting time for ACH credit transfers, which 
are currently posted at 8:30 a.m. on the settlement date. Commercial 
and government ACH debit transfers processed by the Reserve Banks' 
FedACH service will continue to be posted at 11 a.m., while commercial 
and government ACH credit transfers will continue to be posted at 8:30 
a.m. The credit and debit accounting entries associated with ACH credit 
transfers and ACH debit transfers are posted simultaneously at the 
appointed posting time. In line with this decision, the Board will not 
move the posting time for Treasury Tax and Loan (TT&L) investments 
associated with Electronic Federal Tax Payment System (EFTPS) ACH debit 
transfers. These transactions will continue to be posted at 11 a.m. The 
Board will reconsider the proposal in the future.

FOR FURTHER INFORMATION CONTACT: Jeffrey Marquardt, Deputy Director 
(202-452-2360) or Susan Foley, Assistant Director (202-452-3596), 
Division of Reserve Bank Operations and Payment Systems, Board of 
Governors of the Federal Reserve System; for users of 
Telecommunications Device for the Deaf (``TDD'') only, contact (202) 
263-4869.

SUPPLEMENTARY INFORMATION:

I. Background

    On March 7, 2008, the Board requested comment on changing the 
posting time for commercial and government ACH debit transfers that are 
processed by the Reserve Banks' FedACH service to 8:30 a.m. (from 11 
a.m.) on the settlement date to coincide with the posting time for 
commercial and government ACH credit transfers.\1\ The Board outlined 
four potential benefits from shifting earlier the posting time for ACH 
debit transfers. First, for institutions that originate large values of 
ACH debit transfers, the liquidity needed to fund the settlement of ACH 
credit originations at 8:30 a.m. could be largely or entirely offset by 
the receipt of funds from the settlement of ACH debit transfers also at 
8:30 a.m.\2\ Second, the change could increase liquidity for 
institutions that originate ACH debit transfers over the Electronic 
Payments Network (EPN), the other ACH operator, but have transfers 
delivered to receiving depository institutions over the FedACH network 
(inter-operator transactions).\3\ All ACH debit transfers would settle 
at 8:30 a.m. (with all ACH credit transfers) regardless of the operator 
through which the transfer is originated. Third, moving the posting 
time for ACH debit transfers to 8:30 a.m. would align the Reserve 
Banks' FedACH settlement times with those of EPN. The Reserve Banks' 
Retail Payments Office, which has primary responsibility for FedACH, 
believed that this change would remove competitive disparities between 
the two ACH operators and their participants that arise from different 
settlement times for ACH debit transfers. Fourth, the change would 
conform more closely to the Board's guidelines for measuring daylight 
overdrafts, specifically the principle that encourages posting times to 
be as close as possible to the delivery of payments to the receiving 
institution. Because FedACH payments are processed in the early morning 
hours, usually between 2 a.m. and 4 a.m., and payment advices are sent 
to depository institutions generally by 6 a.m., posting ACH debit 
transfers at 8:30 a.m. would shift the settlement time closer to the 
payment delivery time.
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    \1\ See 73 FR 12443, March 7, 2008.
    \2\ Liquidity refers to balances and intraday credit available 
in Federal Reserve accounts to make payments.
    \3\ Inter-operator transactions are posted to the Federal 
Reserve accounts of the originating and receiving institutions 
according to the Board's posting rules for the underlying ACH 
transfers.
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    In its proposal, the Board also recognized that the simultaneous 
posting of ACH debit and credit transfers would reduce, on average, the 
available balances between 8:30 a.m. and 10:59 a.m. for the majority of 
FedACH participants (approximately 95 percent). The majority of FedACH 
participants currently gain balances from the posting of ACH credit 
transfers at 8:30 a.m. If ACH debit transfers are also posted at 8:30 
a.m., the gain in balances for these institutions will either diminish 
or be eliminated. Many institutions would need to fund their Federal 
Reserve accounts through daylight overdrafts or other funding sources. 
The vast majority of

[[Page 79128]]

institutions that would need to fund their accounts are eligible to 
incur daylight overdrafts, but the Board estimated that there are at 
least thirty-five institutions affected that do not have access to 
intraday credit.
    In addition to proposing the change to the posting rules for ACH 
debit transfers, the Board also intended, in consultation with the U.S. 
Treasury, to move the posting of TT&L investments associated with EFTPS 
ACH debit transfers to 8:30 a.m. The U.S. Treasury uses TT&L accounts 
to collect taxes and invest excess Treasury balances with depository 
institutions, including EFTPS tax payments collected through either ACH 
credit or debit transfers. The TT&L investments are currently posted at 
the same time as their respective ACH credit and debit transfers, at 
8:30 a.m. and 11 a.m. The simultaneous posting for the collection of 
these tax payments and investment of excess tax funds collected is 
intended to minimize the effect of the daily tax collection on 
aggregate reserve balances of the banking system. The Board intended to 
shift the posting of TT&L investments associated with EFTPS ACH debit 
transfers to the same time as ACH debit transfers to continue to 
minimize the effect of fluctuations in government receipts on the 
intraday reserve balances of the banking industry.

II. Summary of Comments and Analysis

    The Board received twenty-seven comment letters on its proposed 
policy to change the daylight overdraft posting rules. The commenters 
included eight commercial banking organizations, nine bankers' banks 
(including corporate credit unions), one government-sponsored entity 
(GSE), one Reserve Bank, one private-sector clearing and settlement 
system, and seven industry organizations. Nine commenters, including 
commercial banking organizations, the Reserve Banks' Retail Payments 
Office, and industry organizations, were generally supportive of the 
proposed changes to help reduce the intraday liquidity needs of certain 
depository institutions for ACH transfers. While supportive of the 
proposal, several of these commenters raised concerns about other 
institutions--particularly smaller institutions, institutions in 
western time zones, and those that do not have access to intraday 
credit--that would incur costs associated with the proposed change.
    Seventeen commenters, including commercial banking organizations, 
bankers' banks, industry organizations, and a GSE, opposed the proposed 
change to posting rules. These commenters stated that the proposed 
change would increase daylight overdrafts and create significant 
funding and other costs for their institutions or members. Some of 
these commenters either do not have or represent those that do not have 
regular discount window access and thus do not have access to intraday 
credit under the Board's Policy on Payment System Risk (PSR).\4\ These 
institutions would need to hold higher balances overnight at the 
Reserve Banks or find alternative sources to supply funding before 8:30 
a.m. to avoid incurring daylight overdrafts and thereby avoid violating 
the PSR policy and incurring daylight overdraft penalty fees.
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    \4\ See the PSR policy at http://www.federalreserve.gov/paymentsystems/psr/default.htm.
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    One commenter, a private-sector clearing and settlement system, 
indicated that it had no objection to the proposed change but noted 
that some depository institutions might incur greater daylight 
overdrafts. This commenter, as well as several others, recommended 
implementing the posting-rule change simultaneously with the proposed 
changes to the PSR policy.\5\ The proposed PSR policy changes would 
allow institutions to pledge voluntarily collateral and obtain a zero 
daylight overdraft fee on the resulting collateralized daylight 
overdrafts. Institutions that might incur daylight overdrafts from 
earlier posting of ACH debit transfers would have the opportunity to 
collateralize all or a portion of their daylight overdrafts to reduce 
or eliminate daylight overdraft fees associated with the posting-rule 
change.
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    \5\ The Board issued a separate proposal to address broad 
changes to the PSR policy. See 73 FR 12417, March 7, 2008. The final 
rule for these broad policy changes is published elsewhere in 
today's Federal Register.
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    In responding to the proposal, the majority of commenters also 
addressed the questions raised by the Board on competitive disparities, 
availability of funds to customers of depository institutions, 
liquidity concerns, cost estimates, and implementation time frames.
    The Board asked whether the differences in settlement times caused 
competitive disparities between the ACH operators or institutions that 
use one or the other operator. Eight commenters stated that they 
believed that there are no competitive disparities between ACH 
operators or their participating depository institutions or that the 
disparity resulting from the differences in settlement times is 
negligible. Three of these commenters mentioned that they consider a 
number of factors, including price and service levels, in choosing an 
operator and believed others use similar criteria in making a decision 
about what operator to use. Five commenters, however, believed that 
FedACH and large originating depository institutions using FedACH would 
be in a better position if they received credits earlier for the ACH 
debit transfers they originate. These commenters generally believed 
that FedACH and its customers are competitively disadvantaged relative 
to EPN and its customers because of differences in settlement timing.
    The Board also requested feedback on whether customers of 
depository institutions would benefit from earlier availability of 
funds. Two respondents noted that the posting-rule change could have 
the opposite effect for the availability of funds for customers of 
bankers' banks. Such customers would need to hold a higher value of 
funds overnight and in the morning in order to cover the earlier debit 
for ACH debit transfers, which would reduce the availability of funds 
for those customers. Three commenters responded that the proposed 
change would not have an effect on the availability of funds to their 
customers and believed that there would be no change for most 
depository institutions. Some of these commenters and one additional 
commenter, however, acknowledged that the change could improve the 
availability of funds to customers at certain depository institutions. 
To the extent funds would be made available earlier, one commenter 
stated that businesses would be able to manage their cash positions 
earlier in the day and use those funds for other purposes.
    The Board asked whether the proposed broad PSR policy changes, 
which include a zero fee for collateralized daylight overdrafts, might 
mitigate the liquidity concerns of originating institutions of ACH 
debits without changing the posting rules. The simultaneous posting of 
ACH credit and debit transfers could reduce the use of intraday 
liquidity for certain originating depository institutions because they 
would only need to fund the net amount at 8:30 a.m. Three commenters 
noted that the broad PSR policy changes alone would be sufficient to 
alleviate liquidity issues for most originating institutions. While in 
agreement with these three commenters, another respondent stated that 
liquidity concerns of large originating institutions could be best 
mitigated if both the proposed broad PSR policy changes and the 
proposed posting-rule change were adopted

[[Page 79129]]

simultaneously. This commenter and the other eight supporters of the 
proposed change noted that simultaneous posting of ACH debits with ACH 
credits would reduce the liquidity certain originating depository 
institutions would need.
    In addition, the Board sought feedback on whether the proposed 
broad PSR changes would mitigate liquidity pressures for receiving 
institutions if the posting-rule change were adopted. Six commenters 
stated that the simultaneous adoption of the broad PSR policy and 
posting-rule changes could mitigate liquidity issues created by the 
posting-rule change for receiving institutions. Most of these 
commenters, however, expressed concern about whether institutions, 
especially large receiving depository institutions, would have 
sufficient collateral to pledge to offset increases in daylight 
overdrafts. In addition to these commenters, four other commenters 
stated that either they or others do not have access to intraday credit 
and thus the proposed PSR policy changes would not mitigate the effect 
of the posting-rule change for those institutions. Two commenters 
requested that the Federal Reserve allow bankers' banks that do not 
have access to intraday credit to pledge collateral and receive 
collateralized intraday credit at a zero fee. Under the current 
eligibility criteria, collateralized credit at a zero fee would be 
restricted to accountholders that have access to intraday credit.
    In response to questions on costs, four commenters stated that the 
cost of increased daylight overdrafts might not be significant if the 
broad PSR policy changes were simultaneously implemented, although two 
of these commenters indicated that some institutions, particularly 
large receivers of ACH debit transfers, might not have sufficient 
collateral or might not have access to daylight overdrafts and would 
incur increased costs. A range of commenters identified interest-
related and other costs associated with the proposed posting-rule 
change. Fifteen commenters believed that institutions without access to 
intraday credit as well as their customers would be especially likely 
to suffer lost interest income. Several of these commenters discussed 
the opportunity cost of needing to fund their accounts the previous 
night, including over weekends and holidays, rather than investing in 
the market. Others discussed pursuing arrangements for the early return 
of fed funds loans. Commenters expressed doubt that counterparties 
would be willing to return fed funds loans before 8:30 a.m. and stated 
that reduced rates would be associated with such arrangements, if 
counterparties were willing.\6\ One commenter also raised the option of 
holding greater contractual clearing balances to increase its earnings 
credits for Reserve Banks' services but stated the earnings credits 
would exceed its needs for Reserve Bank-provided priced services and 
would be at a rate lower than alternative investments.
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    \6\ Today, a typical agreement for the early return of fed funds 
loans includes a reduced rate and delivery by 9 a.m.
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    Eight respondents also highlighted the daily variability that makes 
it difficult for receivers of ACH debit transfers to predict with 
certainty their net debit positions before the day of settlement. This 
variability might require institutions to hold higher overnight 
balances than actually needed to ensure sufficient funds to cover ACH 
debit transfers. For some, an alternative to holding overnight balances 
or obtaining the early return of fed funds loans would be to hold 
reserves voluntarily (and thus gain access to the discount window and 
eligibility for intraday credit), but commenters indicated that holding 
reserves would also entail significant costs.\7\ In addition, three 
commenters noted that depository institutions located outside the 
eastern time zone, particularly smaller institutions, might incur 
additional staffing costs in order to manage their accounts before 
normal business hours.
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    \7\ Bankers' banks, including corporate credit unions, are 
depository institutions that are not required to maintain reserves 
under the Board's Regulation D (12 CFR 204) because they are 
organized solely to do business with other financial institutions, 
are owned primarily by the financial institutions with which they do 
business, and do not do business with the general public. Such 
bankers' banks also generally are not eligible for Reserve Bank 
discount window credit under the Board's Regulation A (12 CFR 
201.2(c)(2)) and thus are not eligible for intraday credit under the 
Board's PSR policy. Bankers' banks may waive their exemption from 
reserve requirements under Regulation D to gain regular access to 
the discount window and eligibility for intraday credit.
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    For implementation, the Board stated that, if adopted, it would 
specify an effective date at least six months from the announcement of 
a final rule. In response, six commenters stated that six months or 
less would be a sufficient lead time for implementation, while two 
commenters noted that implementation in six months would be a hardship. 
Eight commenters requested that the Board align the implementation time 
of the posting-rule changes with the implementation of the broad PSR 
policy changes, although in citing a preference for simultaneous 
implementation, two of these commenters requested bankers' banks 
without access to intraday credit be able to pledge collateral for a 
zero fee.
    Three commenters requested that the Board implement the posting-
rule change after the Reserve Banks begin paying interest on Federal 
Reserve account balances. Paying interest on Federal Reserve account 
balances would reduce the opportunity cost of holding balances 
overnight at the Federal Reserve to cover the earlier posting of ACH 
debit transfers. In some cases, the interest paid by the Federal 
Reserve may be greater than rates available in the market, which would 
remove the opportunity cost of holding higher balances.\8\ To the 
extent that the interest paid by the Federal Reserve is less than the 
interest that could be obtained in the market, however, institutions 
would still incur opportunity costs of holding balances at the Reserve 
Banks, but the incremental cost would be greatly reduced through the 
payment of interest on these balances. Paying interest on Federal 
Reserve account balances would also reduce the costs for bankers' banks 
to hold reserves voluntarily (by waiving their exemption from reserve 
requirements) to gain access to the discount window and eligibility for 
intraday credit. In holding reserves voluntarily, bankers' banks would 
have the possibility of using daylight overdrafts to cover the earlier 
posting of ACH debit transfers. While the original effective date for 
paying interest on Federal Reserve account balances was October 2011, 
the Board was granted authority for an earlier implementation in 
October 2008. The Board issued an interim final rule to outline its 
initial implementation for paying interest on Federal Reserve account 
balances, which began on October 9, while also requesting comment on 
certain aspects of the implementation.\9\
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    \8\ The rate paid by the Federal Reserve currently exceeds the 
effective rate for fed funds loans. Institutions have a significant 
incentive to hold balances, in particular excess balances (balances 
held in excess of required reserve balances and clearing balances), 
at the Reserve Banks.
    \9\ See 73 FR 59482, October 9, 2008.
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    The Board has considered the comments on the proposed posting-rule 
change and has decided not to pursue the change at this time. Almost 
all commenters stated that the posting-rule change would place 
additional costs and liquidity pressures on many institutions, 
especially those institutions that do not have access to intraday 
credit at the Reserve Banks, smaller institutions, and West Coast 
institutions. Most commenters indicated that they do not believe 
significant competitive disparities between the ACH operators or 
depository

[[Page 79130]]

institutions result from differences in settlement times. It also does 
not appear that customers of depository institutions would 
significantly benefit from ACH debit transfers being settled earlier in 
the day. In addition, the majority of commenters opposed the proposed 
change and several of those that supported the change raised 
significant concerns about its effect on other institutions.
    The Board, however, believes that over time the payment of interest 
on Federal Reserve account balances and the broad PSR policy changes, 
which were announced separately today in the Federal Register, will 
significantly mitigate the concerns raised by commenters. Interest on 
Federal Reserve account balances will reduce the cost of holding 
balances overnight to fund earlier posting of ACH debits and may 
encourage institutions to hold reserves voluntarily, which would make 
them eligible for intraday credit. The broad PSR policy changes will 
also mitigate the cost of incurring greater daylight overdrafts through 
the voluntary pledging of collateral for a zero fee.
    While not pursuing the original proposal at this time, the Board 
believes that the simultaneous posting of ACH credit and debit 
transfers at 8:30 a.m. would enhance the efficiency of the payment 
system in the long run. Institutions that originate large values of ACH 
debit transfers would benefit from the need for less liquidity to 
settle their ACH transfers. Such a change also would align the 
settlement times for all ACH transfers so that it would not matter 
through which operator an institution originated its ACH transfers. In 
addition, the change would conform more closely to the Board's 
guidelines for measuring daylight overdrafts. The Board will monitor 
changes in the environment as the industry adjusts to the initial 
implementation of paying interest on Federal Reserve account balances 
and other market events and will reconsider the proposed posting-rule 
change in the future.

    By order of the Board of Governors of the Federal Reserve 
System, December 18, 2008.
Jennifer J. Johnson,
Secretary of the Board.
[FR Doc. E8-30628 Filed 12-23-08; 8:45 am]
BILLING CODE 6210-01-P