[Federal Register Volume 84, Number 193 (Friday, October 4, 2019)]
[Notices]
[Pages 53227-53241]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-21659]


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DEPARTMENT OF THE TREASURY

Office of the Comptroller of the Currency

FEDERAL RESERVE SYSTEM

FEDERAL DEPOSIT INSURANCE CORPORATION


Proposed Agency Information Collection Activities; Comment 
Request

AGENCY: Office of the Comptroller of the Currency (OCC), Treasury; 
Board of Governors of the Federal Reserve System (Board); and Federal 
Deposit Insurance Corporation (FDIC).

ACTION: Joint notice and request for comment.

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SUMMARY: In accordance with the requirements of the Paperwork Reduction 
Act of 1995 (PRA), the OCC, the Board, and the FDIC (the ``agencies'') 
may not conduct or sponsor, and the respondent is not required to 
respond to, an information collection unless it displays a currently 
valid Office of Management and Budget (OMB) control number. The Federal 
Financial Institutions Examination Council (FFIEC), of which the 
agencies are members, has approved the agencies' publication for public 
comment of a proposal to revise and extend the Consolidated Reports of 
Condition and Income (Call Reports) (FFIEC 031, FFIEC 041, and FFIEC 
051) and the Regulatory Capital Reporting for Institutions Subject to 
the Advanced Capital Adequacy Framework (FFIEC 101), which are 
currently approved collections of information. The proposed revisions 
to the Call Reports and the FFIEC 101 would implement various changes 
to the agencies' capital rule that the agencies have finalized or are 
considering finalizing. In addition, the agencies are proposing a 
change in the scope of the FFIEC 031 Call Report as well as an 
instructional revision for the reporting of operating lease liabilities 
in the Call Reports, both of which would take effect March 31, 2020, 
and a Call Report instructional revision for home equity lines of 
credit that convert from revolving to non-revolving status that would 
take effect March 31, 2021.

DATES: Comments must be submitted on or before December 3, 2019.

ADDRESSES: Interested parties are invited to submit written comments to 
any or all of the agencies. All comments, which should refer to the 
``Call Report and FFIEC 101 Reporting Revisions,'' will be shared among 
the agencies.
    OCC: You may submit comments, which should refer to ``Call Report 
and FFIEC 101 Reporting Revisions,'' by any of the following methods:
     Email: [email protected].
     Mail: Chief Counsel's Office, Office of the Comptroller of 
the Currency, Attention: 1557-0081 and 1557-0239, 400 7th Street SW, 
Suite 3E-218, Washington, DC 20219.
     Hand Delivery/Courier: 400 7th Street SW, Suite 3E-218, 
Washington, DC 20219.
    Instructions: You must include ``OCC'' as the agency name and 
``1557-

[[Page 53228]]

0081 and 1557-0239'' in your comment. In general, the OCC will publish 
comments on www.reginfo.gov without change, including any business or 
personal information provided, such as name and address information, 
email addresses, or phone numbers. Comments received, including 
attachments and other supporting materials, are part of the public 
record and subject to public disclosure. Do not include any information 
in your comment or supporting materials that you consider confidential 
or inappropriate for public disclosure.
    You may review comments and other related materials that pertain to 
this information collection beginning on the date of publication of the 
second notice for this collection by any of the following methods:
     Viewing Comments Electronically: Go to www.reginfo.gov. 
Click on the ``Information Collection Review'' tab. Underneath the 
``Currently under Review'' section heading, from the drop-down menu 
select ``Department of Treasury'' and then click ``submit.'' This 
information collection can be located by searching by OMB control 
number ``1557-0081'' or ``1557-0239.'' Upon finding the appropriate 
information collection, click on the related ``ICR Reference Number.'' 
On the next screen, select ``View Supporting Statement and Other 
Documents'' and then click on the link to any comment listed at the 
bottom of the screen.
     For assistance in navigating www.reginfo.gov, please 
contact the Regulatory Information Service Center at (202) 482-7340.
     Viewing Comments Personally: You may personally inspect 
comments at the OCC, 400 7th Street SW, Washington, DC. For security 
reasons, the OCC requires that visitors make an appointment to inspect 
comments. You may do so by calling (202) 649-6700 or, for persons who 
are deaf or hearing impaired, TTY, (202) 649-5597. Upon arrival, 
visitors will be required to present valid government-issued photo 
identification and submit to security screening in order to inspect 
comments.
    Board: You may submit comments, which should refer to ``Call Report 
and FFIEC 101 Reporting Revisions,'' by any of the following methods:
     Agency Website: http://www.federalreserve.gov. Follow the 
instructions for submitting comments at: http://www.federalreserve.gov/generalinfo/foia/ProposedRegs.cfm.
     Email: [email protected]. Include ``Call 
Report and FFIEC 101 Reporting Revisions'' in the subject line of the 
message.
     Fax: (202) 452-3819 or (202) 452-3102.
     Mail: Ann E. Misback, Secretary, Board of Governors of the 
Federal Reserve System, 20th Street and Constitution Avenue NW, 
Washington, DC 20551.
    All public comments are available on the Board's website at https://www.federalreserve.gov/apps/foia/proposedregs.aspx as submitted, 
unless modified for technical reasons. Accordingly, your comments will 
not be edited to remove any identifying or contact information. Public 
comments may also be viewed electronically or in paper in Room 146, 
1709 New York Avenue NW, Washington, DC 20006, between 9:00 a.m. and 
5:00 p.m. on weekdays. For security reasons, the Board requires that 
visitors make an appointment to inspect comments. You may do so by 
calling (202) 452-3684. Upon arrival, visitors will be required to 
present valid government-issued photo identification and to submit to 
security screening in order to inspect and photocopy comments.
    FDIC: You may submit comments, which should refer to ``Call Report 
and FFIEC 101 Reporting Revisions,'' by any of the following methods:
     Agency Website: https://www.fdic.gov/regulations/laws/federal/. Follow the instructions for submitting comments on the FDIC's 
website.
     Federal eRulemaking Portal: https://www.regulations.gov. 
Follow the instructions for submitting comments.
     Email: [email protected]. Include ``Call Report and FFIEC 
101 Reporting Revisions'' in the subject line of the message.
     Mail: Manuel E. Cabeza, Counsel, Attn: Comments, Room MB-
3128, Federal Deposit Insurance Corporation, 550 17th Street NW, 
Washington, DC 20429.
     Hand Delivery: Comments may be hand delivered to the guard 
station at the rear of the 550 17th Street Building (located on F 
Street) on business days between 7:00 a.m. and 5:00 p.m.
     Public Inspection: All comments received will be posted 
without change to https://www.fdic.gov/regulations/laws/federal/ 
including any personal information provided. Paper copies of public 
comments may be requested from the FDIC Public Information Center, 3501 
North Fairfax Drive, Arlington, VA 22226, or by telephone at (877) 275-
3342 or (703) 562-2200.
    Additionally, commenters may send a copy of their comments to the 
OMB desk officer for the agencies by mail to the Office of Information 
and Regulatory Affairs, U.S. Office of Management and Budget, New 
Executive Office Building, Room 10235, 725 17th Street NW, Washington, 
DC 20503; by fax to (202) 395-6974; or by email to 
[email protected].

FOR FURTHER INFORMATION CONTACT: For further information about the 
proposed revisions to the information collections discussed in this 
notice, please contact any of the agency staff whose names appear 
below. In addition, copies of the report forms for the Call Report and 
the FFIEC 101 can be obtained at the FFIEC's website (https://www.ffiec.gov/ffiec_report_forms.htm).
    OCC: Kevin Korzeniewski, Counsel, Chief Counsel's Office, (202) 
649-5490, or for persons who are deaf or hearing impaired, TTY, (202) 
649-5597.
    Board: Nuha Elmaghrabi, Federal Reserve Board Clearance Officer, 
(202) 452-3884, Office of the Chief Data Officer, Board of Governors of 
the Federal Reserve System, 20th and C Streets NW, Washington, DC 
20551. Telecommunications Device for the Deaf (TDD) users may call 
(202) 263-4869.
    FDIC: Manuel E. Cabeza, Counsel, (202) 898-3767, Legal Division, 
Federal Deposit Insurance Corporation, 550 17th Street NW, Washington, 
DC 20429.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Affected Reports
    A. Call Reports
    B. FFIEC 101
II. Current Actions
    A. Simplifications Rule
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R
    B. Community Bank Leverage Ratio Rule
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R
    3. Other Proposed Call Report Revisions Related to the CBLR
    C. Proposed Tailoring Rules
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R, Part I
    3. Proposed Revisions to the FFIEC 101
    D. Proposed Total Loss Absorbing Capacity Holdings Rule
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R, Part I
    3. Proposed Revisions to Call Report Schedule RC-R, Part II
    4. Proposed Revisions to FFIEC 101 Schedule A
    i. Deductions From Regulatory Capital
    ii. LTD and TLAC Amounts, Ratios, and Buffer
    E. Proposed Revisions to the Supplementary Leverage Ratio for 
Certain Central Bank Deposits of Custodial Banks
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R, Part I
    3. Proposed Revisions to FFIEC 101 Schedule A

[[Page 53229]]

    F. Proposed Standardized Approach for Counterparty Credit Risk 
on Derivative Contracts
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R, Part II
    3. Proposed Revisions to FFIEC 101 Schedule A, SLR Table 2
    G. High Volatility Commercial Real Estate (HVCRE) Land 
Development Proposal
    1. Background
    2. Proposed Revisions to Call Report Schedule RC-R, Part II
    3. Proposed Revisions to FFIEC 101 Schedule G
    H. Operating Lease Liabilities
    I. Reporting Home Equity Lines of Credit That Convert From 
Revolving to Non-Revolving Status
III. Timing
IV. Request for Comment

I. Affected Reports

    All of the proposed changes discussed below affect the Call 
Reports, while a number of the changes also affect the FFIEC 101. The 
Board will separately propose to make corresponding revisions to the 
Consolidated Financial Statements for Holding Companies (FR Y-9C).\1\
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    \1\ Consolidated Financial Statements for Holding Companies (FR 
Y-9C), OMB Number 7100-0128.
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A. Call Reports

    The agencies propose to extend for three years, with revision, the 
FFIEC 031, FFIEC 041, and FFIEC 051 Call Reports.
    Report Title: Consolidated Reports of Condition and Income (Call 
Report).
    Form Number: FFIEC 031 (Consolidated Reports of Condition and 
Income for a Bank with Domestic and Foreign Offices), FFIEC 041 
(Consolidated Reports of Condition and Income for a Bank with Domestic 
Offices Only, and FFIEC 051 (Consolidated Reports of Condition and 
Income for a Bank with Domestic Offices Only and Total Assets Less Than 
$5 Billion).
    Frequency of Response: Quarterly.
    Affected Public: Business or other for-profit.
    Type of Review: Revision and extension of currently approved 
collections.
OCC
    OMB Control No.: 1557-0081.
    Estimated Number of Respondents: 1,152 national banks and federal 
savings associations.
    Estimated Average Burden per Response: 39.74 burden hours per 
quarter to file.
    Estimated Total Annual Burden: 183,122 burden hours to file.
Board
    OMB Control No.: 7100-0036.
    Estimated Number of Respondents: 781 state member banks.
    Estimated Average Burden per Response: 43.64 burden hours per 
quarter to file.
    Estimated Total Annual Burden: 136,331 burden hours to file.
FDIC
    OMB Control No.: 3064-0052.
    Estimated Number of Respondents: 3,419 insured state nonmember 
banks and state savings associations.
    Estimated Average Burden per Response: 38.47 burden hours per 
quarter to file.
    Estimated Total Annual Burden: 526,116 burden hours to file.
    The estimated average burden hours collectively reflect the 
estimates for the FFIEC 051, the FFIEC 041, and the FFIEC 031 reports 
for each agency. When the estimates are calculated by type of report 
across the agencies, the estimated average burden hours per quarter are 
35.38 (FFIEC 051), 49.45 (FFIEC 041), and 95.06 (FFIEC 031). The 
estimated burden hours for the currently approved reports are 40.27 
(FFIEC 051), 53.72 (FFIEC 041), and 95.60 (FFIEC 031), so the revisions 
proposed in this notice would represent a reduction in estimated 
average burden hours per quarter of 4.89 (FFIEC 051), 4.27 (FFIEC 041), 
and 0.54 (FFIEC 031). The change in burden is predominantly due to 
changes associated with the community bank leverage ratio rule. The 
reduction in average burden hours is significantly less for the FFIEC 
031 than for the FFIEC 041 or the FFIEC 051 because greater percentages 
of institutions that would be eligible to report under the proposed 
community bank leverage ratio framework currently file the FFIEC 041 or 
the FFIEC 051 than the FFIEC 031.\2\ The estimated burden per response 
for the quarterly filings of the Call Report is an average that varies 
by agency because of differences in the composition of the institutions 
under each agency's supervision (e.g., size distribution of 
institutions, types of activities in which they are engaged, and 
existence of foreign offices).
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    \2\ For estimating burden hours, the agencies assumed 60 percent 
of eligible institutions would use the framework.
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    Type of Review: Extension and revision of currently approved 
collections.
Legal Basis and Need for Collections
    The Call Report information collections are mandatory: 12 U.S.C. 
161 (for national banks), 12 U.S.C. 324 (for state member banks), 12 
U.S.C. 1817 (for insured state nonmember commercial and savings banks), 
and 12 U.S.C. 1464 (for federal and state savings associations). At 
present, except for selected data items and text, these information 
collections are not given confidential treatment.
    Banks and savings associations submit Call Report data to the 
agencies each quarter for the agencies' use in monitoring the 
condition, performance, and risk profile of individual institutions and 
the industry as a whole. Call Report data serve a regulatory or public 
policy purpose by assisting the agencies in fulfilling their shared 
missions of ensuring the safety and soundness of financial institutions 
and the financial system and protecting consumer financial rights, as 
well as agency-specific missions affecting national and state-chartered 
institutions, such as conducting monetary policy, ensuring financial 
stability, and administering federal deposit insurance. Call Reports 
are the source of the most current statistical data available for 
identifying areas of focus for on-site and off-site examinations. Among 
other purposes, the agencies use Call Report data in evaluating 
institutions' corporate applications, including interstate merger and 
acquisition applications for which the agencies are required by law to 
determine whether the resulting institution would control more than 10 
percent of the total amount of deposits of insured depository 
institutions in the United States. Call Report data also are used to 
calculate institutions' deposit insurance assessments and national 
banks' and federal savings associations' semiannual assessment fees.

B. FFIEC 101

    The agencies propose to extend for three years, with revision, the 
FFIEC 101 report.
    Report Title: Risk-Based Capital Reporting for Institutions Subject 
to the Advanced Capital Adequacy Framework.
    Form Number: FFIEC 101.
    Frequency of Response: Quarterly.
    Affected Public: Business or other for-profit.
OCC
    OMB Control No.: 1557-0239.
    Estimated Number of Respondents: 8 national banks and federal 
savings associations.
    Estimated Time per Response: 674 burden hours per quarter to file 
for banks and federal savings associations.
    Estimated Total Annual Burden: 21,568 burden hours to file.

[[Page 53230]]

Board
    OMB Control No.: 7100-0319.
    Estimated Number of Respondents: 1 state member bank; 4 bank 
holding companies and savings and loan holding companies that complete 
Supplementary Leverage Ratio (SLR) Tables 1 and 2 only; 9 other bank 
holding companies and savings and loan holding companies; and 6 
intermediate holding companies.
    Estimated Time per Response: 674 burden hours per quarter to file 
for state member banks; 3 burden hours per quarter to file for bank 
holding companies and savings and loan holding companies that complete 
Supplementary Leverage Ratio (SLR) Tables 1 and 2 only; 677 burden 
hours per quarter to file for other bank holding companies and savings 
and loan holding companies; and 3 burden hours per quarter to file for 
intermediate holding companies.
    Estimated Total Annual Burden: 2,696 burden hours for state member 
banks to file; 48 burden hours for bank holding companies and savings 
and loan holding companies that complete Supplementary Leverage Ratio 
(SLR) Tables 1 and 2 only to file; 24,372 burden hours for other bank 
holding companies and savings and loan holding companies to file; and 
72 burden hours for intermediate holding companies to file.
FDIC
    OMB Control No.: 3064-0159.
    Estimated Number of Respondents: 1 insured state nonmember bank and 
state savings association.
    Estimated Time per Response: 674 burden hours per quarter to file.
    Estimated Total Annual Burden: 2,696 burden hours to file.
    Type of Review: Extension and revision of currently approved 
collections.
Legal Basis and Need for Collections
    Each advanced approaches institution \3\ is required to report 
quarterly regulatory capital data on the FFIEC 101. The FFIEC 101 
information collections are mandatory for advanced approaches 
institutions: 12 U.S.C. 161 (national banks), 12 U.S.C. 324 (state 
member banks), 12 U.S.C. 1844(c) (bank holding companies), 12 U.S.C. 
1467a(b) (savings and loan holding companies), 12 U.S.C. 1817 (insured 
state nonmember commercial and savings banks), 12 U.S.C. 1464 (savings 
associations), and 12 U.S.C. 1844(c), 3106, and 3108 (intermediate 
holding companies). Certain data items in this information collection 
are given confidential treatment under 5 U.S.C. 552(b)(4) and (8).
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    \3\ See 12 CFR 3.100(b) (OCC); 12 CFR 217.100(b) (Board); 12 CFR 
324.100(b) (FDIC).
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    The agencies use data reported in the FFIEC 101 to assess and 
monitor the levels and components of each reporting entity's capital 
requirements and the adequacy of the entity's capital under the 
Advanced Capital Adequacy Framework; \4\ to evaluate the impact of the 
Advanced Capital Adequacy Framework on individual reporting entities 
and on an industry-wide basis and its competitive implications; and to 
supplement on-site examination processes. The reporting schedules also 
assist advanced approaches institutions in understanding expectations 
relating to the system development necessary for implementation and 
validation of the Advanced Capital Adequacy Framework. Submitted data 
that are released publicly will also provide other interested parties 
with information about advanced approaches institutions' regulatory 
capital.
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    \4\ 12 CFR part 3, subpart E (OCC); 12 CFR part 217, subpart E 
(Board); 12 CFR part 324, subpart E (FDIC).
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II. Current Actions

A. Simplifications Rule

1. Background
    On July 22, 2019, the agencies published a final rule amending 
their regulatory capital rule \5\ to make a number of burden-reducing 
changes to the capital rule (simplifications rule).\6\ In the 
simplifications rule, the agencies adopted a simpler methodology for 
non-advanced approaches banking organizations \7\ to calculate minority 
interest limitations and simplified the regulatory capital treatment of 
mortgage servicing assets (MSAs), temporary difference deferred tax 
assets (DTAs), and investments in the capital of unconsolidated 
financial institutions. The simplifications rule had an effective date 
of April 1, 2020. However, the FDIC and the OCC have recently 
approved,\8\ and the Board is considering, a planned final rule that 
would permit non-advanced approaches banking organizations to implement 
the simplifications rule on January 1, 2020. As a result, non-advanced 
approaches banking organizations would have the option to implement the 
simplifications rule on the revised effective date of January 1, 2020, 
or wait until the quarter beginning April 1, 2020.
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    \5\ 12 CFR part 3 (OCC); 12 CFR part 217 (Board); 12 CFR part 
324 (FDIC). While the agencies have codified the capital rule in 
different parts of title 12 of the Code of Federal Regulations, the 
internal structure of the sections within each agency's rule are 
substantially similar.
    \6\ 84 FR 35234 (July 22, 2019).
    \7\ Non-advanced approaches banking organizations are 
institutions that do not meet the criteria in 12 CFR 3.100(b) (OCC); 
12 CFR 217.100(b) (Board); or 12 CFR 324.100(b) (FDIC).
    \8\ See FDIC Press Release 80-2019, dated September 17, 2019.
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    The agencies propose revisions to Call Report Schedule RC-R, 
Regulatory Capital, in all three versions of the Call Report to 
implement the associated changes to the agencies' regulatory capital 
rule effective as of the March 31, 2020, report date, consistent with 
the planned final rule that would permit early adoption of the 
simplifications rule.
    In addition, the agencies adopted a number of technical amendments 
to their regulatory capital rule in the simplifications rule that do 
not require clearance under the PRA and would become effective October 
1, 2019.
2. Proposed Revisions to Call Report Schedule RC-R
    The revisions in the simplifications rule would make a number of 
changes to the calculation of common equity tier 1 (CET1) capital, 
additional tier 1 capital, and tier 2 capital for non-advanced 
approaches institutions that do not apply to advanced approaches 
institutions. Thus, the simplifications rule results in different sets 
of calculations for these tiers of regulatory capital for non-advanced 
approaches institutions and advanced approaches institutions. At 
present, the FFIEC 031 and the FFIEC 041 Call Reports are completed by 
both non-advanced approaches institutions and advanced approaches 
institutions while only non-advanced approaches institutions are 
eligible to file the FFIEC 051 Call Report. To mitigate the complexity 
of revising existing Schedule RC-R, Part I, Regulatory Capital 
Components and Ratios, to incorporate the different sets of regulatory 
capital calculations for non-advanced approaches institutions and 
advanced approaches institutions, and to reflect the effects of the 
simplifications rule in both the FFIEC 031 and FFIEC 041 Call Reports, 
the agencies are proposing to require all advanced approaches 
institutions to file the FFIEC 031 Call Report effective as of the 
March 31, 2020, report date.\9\ As a result, the agencies would adjust 
the existing regulatory capital calculations reported on Schedule RC-R, 
Part I, for the FFIEC 041 Call Report, and also for the FFIEC 051 Call 
Report, to reflect the

[[Page 53231]]

effects of the simplifications rule for non-advanced approaches 
institutions. For the FFIEC 031 Call Report, which is filed by the 
fewest institutions, the agencies are proposing to incorporate the two 
different sets of regulatory capital calculations (one for non-advanced 
approaches institutions and the other for advanced approaches 
institutions) in Schedule RC-R, Part I, and, as mentioned above, 
require all advanced approaches institutions to file this version of 
the Call Report.
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    \9\ While this proposed change relates to existing advanced 
approaches institutions, as discussed in Section II.C. below, the 
agencies also propose to require all Category I, II, and III 
institutions to file the FFIEC 031 Call Report.
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    The agencies propose a number of revisions that would simplify the 
capital calculations on each version of Schedule RC-R, Part I, 
effective March 31, 2020, and thereby reduce reporting burden. Because 
both non-advanced approaches institutions and advanced approaches 
institutions file the FFIEC 031 Call Report, the FFIEC 031 Call Report 
would include two different sets of calculations (one that incorporates 
the effects of the simplifications rule and the other that does not) in 
adjacent columns in the affected portion of Schedule RC-R, Part I. An 
institution would complete only the column for the set of calculations 
applicable to that institution. For the March 31, 2020, report date, 
non-advanced approaches institutions that file the FFIEC 031 Call 
Report and elect to adopt the simplifications rule on January 1, 2020, 
would complete the column for the set of calculations that incorporates 
the effects of the simplifications rule. Non-advanced approaches 
institutions that elect to wait to adopt the simplifications rule on 
April 1, 2020, and all advanced approaches institutions would complete 
the column for the set of calculations that does not reflect the 
effects of the simplifications rule (i.e., that reflects the capital 
calculation in effect for all institutions before this revision). 
Beginning with the June 30, 2020, report date, all non-advanced 
approaches institutions that file the FFIEC 031 Call Report would 
complete the column for the set of calculations that incorporates the 
effects of the simplifications rule; all advanced approaches 
institutions that file this Call Report would complete the column that 
does not reflect the effects of the simplifications rule.
    Because advanced approaches institutions currently are not 
permitted to file the FFIEC 051 Call Report and would not be permitted 
to file the FFIEC 041 Call Report, the FFIEC 041 and FFIEC 051 Call 
Reports would include a single column for the capital calculation in 
Schedule RC-R, Part I, that would be revised effective March 31, 2020, 
to incorporate the effects of the simplifications rule. For the March 
31, 2020, report date, non-advanced approaches institutions that file 
the FFIEC 041 or FFIEC 051 Call Report and elect to adopt the 
simplifications rule on January 1, 2020, would complete the capital 
calculation column in Schedule RC-R, Part I, as revised for the 
simplifications rule. The agencies propose to provide instructions for 
non-advanced approaches institutions that file the FFIEC 041 or FFIEC 
051 Call Report that elect to wait to adopt the simplifications rule on 
April 1, 2020, on how to complete Schedule RC-R, including the capital 
calculation column, for the March 31, 2020, report date in accordance 
with the capital rule in effect before the simplifications rule's 
revised effective date of January 1, 2020. Beginning with the June 30, 
2020, report date, all non-advanced approaches institutions that file 
the FFIEC 041 or FFIEC 051 Call Report would complete Schedule RC-R as 
revised for the simplifications rule.
    In connection with proposing that all advanced approaches 
institutions file the FFIEC 031 Call Report, the agencies propose to 
remove certain items from the FFIEC 041 Call Report that apply only to 
advanced approaches institutions. Thus, for Schedule RC-R, Part I, in 
the FFIEC 041 Call Report, the agencies propose to remove items 30.b, 
32.b, 34.b, 35.b, 40.b, 41 through 43 (Column B only), 45.a, 45.b, and 
46.b. The agencies propose to renumber items 30.a, 32.a, 34.a, 35.a, 
40.a, and 46.a as items 30, 32, 34, 35, 40, and 46, respectively. When 
the FFIEC 051 Call Report was created in 2016 (and implemented as of 
March 31, 2017), Schedule RC-R, Part I, was revised to remove the items 
and references applicable only to advanced approaches institutions. 
Thus, as a result, Schedule RC-R, Part I, as it is proposed to be 
revised in the FFIEC 041 would be the same as the existing Schedule RC-
R, Part I, in the FFIEC 051.
    In the simplifications rule, the agencies increased the thresholds 
for including MSAs, temporary difference DTAs that could not be 
realized through net operating loss carrybacks (temporary difference 
DTAs),\10\ and investments in the capital of unconsolidated financial 
institutions for non-advanced approaches institutions. In addition, the 
agencies revised the capital calculation for minority interests 
included in the various capital categories for non-advanced approaches 
institutions and to the calculation of the capital conservation buffer.
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    \10\ The agencies note that An Act to provide for reconciliation 
pursuant to titles II and V of the concurrent resolution on the 
budget for fiscal year 2018, Public Law 115-97 (originally 
introduced as the Tax Cuts and Jobs Act), enacted December 22, 2017, 
eliminated the concept of net operating loss carrybacks for U.S. 
federal income tax purposes, although the concept may still exist in 
particular jurisdictions for state or foreign income tax purposes.
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    The current regulatory capital calculations in Call Report Schedule 
RC-R, which do not yet reflect the revisions contained in the 
simplifications rule, require that an institution's capital cannot 
include MSAs, certain temporary difference DTAs, and significant 
investments in the common stock of unconsolidated financial 
institutions in an amount greater than 10 percent of CET1 capital, on 
an individual basis, and those three data items combined cannot 
comprise more than 15 percent of CET1 capital. When the reporting of 
regulatory capital calculations by non-advanced approaches institutions 
in accordance with the simplifications rule takes effect, this 
calculation would be revised in Schedule RC-R, Part I, to require that 
only MSAs or temporary difference DTAs in an amount greater than 25 
percent of CET1 capital, on an individual basis, could not be included 
in a non-advanced approaches institution's capital. The 15 percent 
aggregate limit would be removed. In addition, the simplifications rule 
will combine the current three categories of investments in financial 
institutions (non-significant investments in the capital of 
unconsolidated financial institutions, significant investments in the 
capital of unconsolidated financial institutions that are in the form 
of common stock, and significant investments in the capital of 
unconsolidated financial institutions that are not in the form of 
common stock) into a single category, investments in the capital of 
unconsolidated financial institutions, and will apply a limit of 25 
percent of CET1 capital on the amount of these investments that can be 
included in capital. Any investments in excess of the 25 percent limit 
would be deducted from capital using the corresponding deduction 
approach.
    Consistent with the current capital rule, an institution must risk 
weight MSAs, temporary difference DTAs, and investments in the capital 
of unconsolidated financial institutions that are not deducted. The 
agencies propose revisions to allow institutions to enter values into 
the Column K--250% risk weight on Schedule RC-R, Part II, in the FFIEC 
051 Call Report, which is currently shaded out, and remove footnote two 
on the second page of Schedule RC-R, Part II, and the corresponding 
footnote on subsequent pages of Schedule RC-R, Part II, in all three 
versions of the Call Reports

[[Page 53232]]

effective as of the March 31, 2020, report date to accommodate the 
simplifications rule revisions to the risk weight for MSAs and 
temporary difference DTAs. Consistent with the simplifications rule, 
non-advanced approaches institutions will not be required to 
differentiate among categories of investments in the capital of 
unconsolidated financial institutions. The risk weight for such equity 
exposures generally will be 100 percent, provided the exposures qualify 
for this risk weight.\11\ For non-advanced approaches institutions, the 
simplifications rule eliminates the exclusion of significant 
investments in the capital of unconsolidated financial institutions in 
the form of common stock from being eligible for a 100 percent risk 
weight.\12\ The application of the 100 percent risk weight (i) requires 
a banking organization to follow an enumerated process for calculating 
adjusted carrying value and (ii) mandates the equity exposures that 
must be included in determining whether the threshold has been reached. 
Equity exposures that do not qualify for a preferential risk weight 
will generally receive risk weights of either 300 percent or 400 
percent, depending on whether the equity exposures are publicly traded.
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    \11\ 12 CFR 3.52 and .53 (OCC); 12 CFR 217.52 and .53 (Board); 
12 CFR 324.52 and .53 (FDIC). Note that for purposes of calculating 
the 10 percent nonsignificant equity bucket, the capital rule 
excludes equity exposures that are assigned a risk weight of zero 
percent and 20 percent, and community development equity exposures 
and the effective portion of hedge pairs, both of which are assigned 
a 100 percent risk weight. In addition, the 10 percent non-
significant bucket excludes equity exposures to an investment firm 
that would not meet the definition of traditional securitization 
were it not for the application of criterion 8 of the definition of 
traditional securitization, and has greater than immaterial 
leverage.
    \12\ Equity exposures that exceed, in the aggregate, 10 percent 
of a non-advanced approaches banking organization's total capital 
would then be assigned a risk weight based upon the approaches 
available in sections 52 and 53 of the capital rule. 12 CFR 3.52 and 
.53 (OCC); 12 CFR 217.52 and .53 (Board); 12 CFR 324.52 and .53 
(FDIC).
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    In order to implement these regulatory capital changes from a 
regulatory reporting perspective, the agencies propose to make a number 
of revisions to Schedule RC-R, Part I, for non-advanced approaches 
institutions effective March 31, 2020. Specifically, in Schedule RC-R, 
Part I, in the FFIEC 041 and FFIEC 051 Call Reports, the agencies 
propose to remove item 11 and modify item 13 to reflect the 
consolidation of all investments in unconsolidated financial 
institutions into a single category and apply a single 25 percent of 
CET1 capital limit to these investments. The agencies propose to modify 
items 14 and 15 to reflect the 25 percent of CET1 capital limit for 
MSAs and certain temporary difference DTAs, respectively. The agencies 
also propose to remove item 16, which applies to the aggregate 15 
percent limitation that was removed from the capital rule for non-
advanced approaches institutions. In the FFIEC 031 Call Report, the 
agencies propose to create two columns for existing items 11 through 
19. Column A would be reported by non-advanced approaches institutions 
that elect to adopt the simplifications rule on January 1, 2020, in the 
March 2020 Call Report and by all non-advanced approaches institutions 
beginning in the June 2020 Call Report using the definitions under the 
simplifications rule. Column A would not include items 11 or 16, and 
items 13 through 15 would be designated as items 13.a through 15.a to 
reflect the new calculation methodology. Column B would be reported by 
advanced approaches institutions and by non-advanced approaches 
institutions that elect to wait to adopt the simplifications rule on 
April 1,2020, in the March 2020 Call Report and only by advanced 
approaches institutions beginning in the June 2020 Call Report using 
the existing definitions. Existing items 13 through 15 would be 
designated as items 13.b through 15.b to reflect continued use of the 
existing calculation methodology.
    The agencies are not proposing any changes to the form to 
incorporate the minority interest revisions. However, the agencies are 
proposing to modify the instructions for the existing minority interest 
items in all versions of the Call Report to reflect the ability of non-
advanced approaches institutions to use the revised method under the 
simplifications rule to calculate minority interest in existing items 
4, 22, and 29 (CET1, additional tier 1, and tier 2 minority interest, 
respectively).

B. Community Bank Leverage Ratio Rule

1. Background
    In February 2019, the agencies proposed a rule to provide a 
simplified alternative measure of capital adequacy, the community bank 
leverage ratio (CBLR), for qualifying community banking organizations 
with less than $10 billion in total consolidated assets (CBLR proposed 
rule),\13\ consistent with section 201 of the Economic Growth, 
Regulatory Relief, and Consumer Protection Act (EGRRCPA).\14\ In 
February 2019, the FDIC published a proposed rule to amend the deposit 
insurance assessment regulations to incorporate the community bank 
leverage ratio framework (CBLR framework) into the deposit insurance 
assessment system (CBLR assessments proposed rule).\15\ The agencies 
then requested comment in April 2019 on proposed revisions to the Call 
Report to implement the CBLR proposed rule and the CBLR assessments 
proposed rule.\16\
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    \13\ 84 FR 3062 (February 8, 2019).
    \14\ Public Law 115-174, 132 Stat. 1296 (2018).
    \15\ 84 FR 5380 (February 21, 2019).
    \16\ 84 FR 16560 (April 19, 2019).
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    However, the FDIC and the OCC have recently approved,\17\ and the 
Board is considering, a final rule (planned CBLR final rule) that 
contains significant revisions to the calculation methodology relative 
to the CBLR proposed rule. Therefore, the agencies are proposing a 
revised version of community bank leverage ratio reporting in the Call 
Report to reflect the changes in the planned CBLR final rule, which 
replaces the previously proposed community bank leverage ratio 
reporting that had been designed to implement the CBLR proposed rule. 
In addition, the FDIC has recently approved a final rule regarding the 
application of the CBLR framework to the deposit insurance assessment 
system (CBLR assessments final rule).\18\ Because of the features of 
the revised calculation methodology in the planned CBLR final rule 
described below, the agencies are not proceeding with the previously 
proposed revisions to Call Report Schedule RC-O, ``Other Data for 
Deposit Insurance Assessments,'' to implement the CBLR assessments 
proposed rule \19\ and no revisions to Schedule RC-O are being proposed 
in connection with the CBLR assessments final rule. Certain 
clarifications would be made to the Schedule RC-O instructions to 
address the application of the CBLR framework to the FDIC's deposit 
insurance assessment system in accordance with the CBLR assessments 
final rule.
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    \17\ See FDIC Press Release 80-2019, dated September 17, 2019.
    \18\ See FDIC Press Release 80-2019, dated September 17, 2019.
    \19\ See 84 FR 16565-16566 (April 19, 2019).
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    Under the planned CBLR final rule, banking organizations that have 
less than $10 billion in total consolidated assets, meet risk-based 
qualifying criteria, and have a leverage ratio of greater than 9 
percent will be eligible to opt into the CBLR framework. A banking 
organization that opts into the CBLR framework, maintains a leverage 
ratio of greater than 9 percent, and meets the other qualifying 
criteria will not be subject to other risk-based and leverage capital 
requirements and, in the case of an insured depository

[[Page 53233]]

institution (IDI), would be considered to have met the well capitalized 
capital ratio requirements for purposes of the agencies' prompt 
corrective action framework.
    Under the planned CBLR final rule, a bank or savings association 
(bank) that opts into the CBLR framework (CBLR bank) may opt out of the 
CBLR framework at any time, without restriction, by reverting to the 
generally applicable capital requirements in the agencies' capital rule 
\20\ and reporting its regulatory capital information in Call Report 
Schedule RC-R, ``Regulatory Capital,'' Parts I and II, at the time of 
opting out.
---------------------------------------------------------------------------

    \20\ 12 CFR part 3 (OCC); 12 CFR part 217 (Board); 12 CFR part 
324 (FDIC).
---------------------------------------------------------------------------

    As described in the planned CBLR final rule, a banking organization 
that no longer meets the qualifying criteria for the CBLR framework 
will be required within two consecutive calendar quarters (grace 
period) either to once again satisfy the qualifying criteria or 
demonstrate compliance with the generally applicable capital 
requirements. During the grace period, the bank would continue to be 
treated as a CBLR bank and would be required to report its leverage 
ratio and related components in Call Report Schedule RC-R, Part I, in 
the manner described in this notice.\21\ A CBLR bank that ceases to 
meet the qualifying criteria as a result of a business combination 
(e.g., a merger) would receive no grace period, and would immediately 
become subject to the generally applicable capital requirements. 
Similarly, a CBLR bank that fails to maintain a leverage ratio greater 
than 8 percent would not be permitted to use the grace period and would 
immediately become subject to the generally applicable capital 
requirements.
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    \21\ For example, if the electing banking organization no longer 
meets one of the qualifying criteria as of February 15, and still 
does not meet the criteria as of the end of that quarter, the grace 
period for such a banking organization will begin as of the end of 
the quarter ending March 31. The banking organization may continue 
to use the community bank leverage ratio framework as of June 30, 
but will need to comply fully with the generally applicable rule 
(including the associated reporting requirements) as of September 
30, unless the banking organization once again meets all qualifying 
criteria of the community bank leverage ratio framework, including a 
leverage ratio of greater than 9 percent, by that date.
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2. Proposed Revisions to Call Report Schedule RC-R
    In this notice, the agencies are proposing reporting revisions to 
the Call Reports for banks that qualify for and opt into the CBLR 
framework, consistent with the planned CBLR final rule. The reporting 
changes to the Call Reports proposed in this notice would take effect 
in the same quarter as the effective date of the planned final rule 
adopting the CBLR framework.
    The agencies originally proposed to incorporate all the community 
bank leverage ratio items into a separate version of Schedule RC-R. 
However, after considering the substantial changes made in the planned 
CBLR final rule, the agencies now propose to incorporate all the 
revisions related to the community bank leverage ratio into the 
existing Schedule RC-R, Part I, for all versions of the Call Report.
    As provided in the planned CBLR final rule, the numerator of the 
community bank leverage ratio will be tier 1 capital, which is 
currently reported in Schedule RC-R, Part I, item 26. Therefore, the 
agencies are not proposing any changes related to the numerator of the 
community bank leverage ratio.
    As provided in the planned CBLR final rule, the denominator of the 
community bank leverage ratio will be average total consolidated 
assets. Specifically, average total consolidated assets would be 
calculated in accordance with the existing reporting instructions for 
Schedule RC-R, Part I, items 36 through 39. The agencies are not 
proposing any substantive changes related to the denominator of the 
community bank leverage ratio. However, the agencies are proposing to 
move existing items 36 through 39 of Schedule RC-R, Part I, and 
renumber them as items 27 through 30 of Schedule RC-R, Part I, to 
consolidate all of the community-bank-leverage-ratio-related capital 
items earlier in Schedule RC-R, Part I.
    As provided in the planned CBLR final rule, a CBLR bank will 
calculate its community bank leverage ratio by dividing tier 1 capital 
by average total consolidated assets (as adjusted), and the community 
bank leverage ratio would be reported as a percentage, rounded to four 
decimal places. Since this calculation is essentially identical to the 
existing calculation of the tier 1 leverage ratio in Schedule RC-R, 
Part I, item 44, the agencies are not proposing a separate item for the 
community bank leverage ratio in Schedule RC-R, Part I. Instead, the 
agencies propose to move the tier 1 leverage ratio from item 44 of Part 
I and renumber it as item 31, and rename the item the Leverage Ratio, 
as this ratio would apply to all institutions (as the community bank 
leverage ratio for qualifying institutions or the tier 1 leverage ratio 
for all other institutions).
    As provided in the planned CBLR final rule, a CBLR bank will need 
to satisfy certain qualifying criteria in order to be eligible to opt 
into the CBLR framework. The proposed items identified below would 
collect information necessary to ensure that a bank continuously meets 
the qualifying criteria for using the CBLR framework.
    Specifically, a CBLR bank is a bank that is not an advanced 
approaches institution and meets the following qualifying criteria:
     A leverage ratio of greater than 9 percent;
     Total consolidated assets of less than $10 billion;
     Total trading assets and trading liabilities of 5 percent 
or less of total consolidated assets; and
     Total off-balance sheet exposures (excluding derivatives 
other than sold credit derivatives and unconditionally cancelable 
commitments) of 25 percent or less of total consolidated assets.\22\
---------------------------------------------------------------------------

    \22\ Under the planned CBLR final rule, the agencies have 
reserved the authority to disallow the use of the CBLR framework by 
a depository institution or depository institution holding company 
based on the risk profile of the banking organization. This 
authority is reserved under the general reservation of authority 
included in the capital rule, in which the CBLR framework would be 
codified. See 12 CFR 3.1(d) (OCC); 12 CFR 217.1(d) (Board); 12 CFR 
324.1(d) (FDIC). In addition, for purposes of the capital rule and 
section 201 of the EGRRCPA, the agencies have reserved the authority 
to take action under other provisions of law, including action to 
address unsafe or unsound practices or conditions, deficient capital 
levels, or violations of law or regulation. See 12 CFR 3.1(b) (OCC); 
12 CFR 217.1(b) (Board); 12 CFR 324.1(b) (FDIC).
---------------------------------------------------------------------------

    Accordingly, the agencies propose collecting the items described 
below for community bank leverage ratio reporting purposes.
    In proposed item 32 of Schedule RC-R, Part I, a CBLR bank would 
report total assets, as reported in Call Report Schedule RC, item 12.
    In proposed item 33, a CBLR bank would report the sum of trading 
assets from Schedule RC, item 5, and trading liabilities from Schedule 
RC, item 15, in Column A. The bank would also report that sum divided 
by total assets from Schedule RC, item 12, and expressed as a 
percentage in Column B. As provided in the planned CBLR final rule, 
trading assets and trading liabilities would be added together, not 
netted, for purposes of this calculation. Also as discussed in the 
planned CBLR final rule, a bank would not meet the definition of a 
qualifying community banking organization for purposes of the CBLR 
framework if the percentage reported in Column B is greater than 5 
percent.
    In proposed items 34.a through 34.d, a CBLR bank would report 
information related to commitments, other off-balance sheet exposures, 
and sold credit derivatives.

[[Page 53234]]

    In proposed item 34.a, a CBLR bank would report the unused portion 
of conditionally cancelable commitments. This amount would be the 
amount of all unused commitments less the amount of unconditionally 
cancelable commitments, as discussed in the planned CBLR final rule and 
defined in the agencies' capital rule.\23\ This item would be 
calculated consistent with the sum of Schedule RC-R, Part II, items 
18.a and 18.b, Column A.
---------------------------------------------------------------------------

    \23\ See definition of ``unconditionally cancellable'' in 12 CFR 
3.2 (OCC); 12 CFR 217.2 (Board); 12 CFR 324.2 (FDIC).
---------------------------------------------------------------------------

    In proposed item 34.b, a CBLR bank would report total securities 
lent and borrowed, which would be the sum of Schedule RC-L, items 6.a 
and 6.b.
    In proposed item 34.c, a CBLR bank would report the sum of certain 
other off-balance sheet exposures and sold credit derivatives. 
Specifically, a CBLR bank would report the sum of self-liquidating, 
trade-related contingent items that arise from the movement of goods; 
transaction-related contingent items (performance bonds, bid bonds, 
warranties, and performance standby letters of credit); sold credit 
protection in the form of guarantees and credit derivatives; credit-
enhancing representations and warranties; financial standby letters of 
credit; forward agreements that are not derivative contracts; and off-
balance sheet securitizations. A CBLR bank would not include 
derivatives that are not sold credit derivatives, such as foreign 
exchange swaps and interest rate swaps, in proposed item 34.c.
    In proposed item 34.d, a CBLR bank would report the sum of proposed 
items 34.a through 34.c in Column A. The bank would also report that 
sum divided by total assets from Schedule RC, item 12, and expressed as 
a percentage in Column B. As discussed in the planned CBLR final rule, 
a bank would not be eligible to opt into the CBLR framework if this 
percentage is greater than 25 percent.
    In proposed item 35, a CBLR bank would report the total of 
unconditionally cancellable commitments, which would be calculated 
consistent with the instructions for existing Schedule RC-R, Part II, 
item 19. This item is not used specifically to calculate a bank's 
eligibility for the CBLR framework. However, the agencies are 
collecting this information to identify any bank using the CBLR 
framework that may have significant or excessive concentrations in 
unconditionally cancellable commitments that would warrant the 
agencies' use of the reservation of authority in their capital rule to 
direct an otherwise-eligible CBLR bank to report its regulatory capital 
using the generally applicable capital requirements.\24\
---------------------------------------------------------------------------

    \24\ Other factors also may lead the agencies to determine that 
the risk profile of an otherwise-eligible CBLR bank would warrant 
the use of the reservation of authority.
---------------------------------------------------------------------------

    In proposed item 36, a CBLR bank would report the amount of 
investments in the capital instruments of an unconsolidated financial 
institution that would qualify as tier 2 capital. Since the CBLR 
framework does not have a total capital requirement, a CBLR bank is 
neither required to calculate tier 2 capital nor make any deductions 
that would be taken from tier 2 capital. Therefore, if a CBLR bank has 
investments in the capital instruments of an unconsolidated financial 
institution that would qualify as tier 2 capital of the CBLR bank under 
the generally applicable capital requirements (tier 2 qualifying 
instruments), and the CBLR bank's total investments in the capital of 
unconsolidated financial institutions exceed 25 percent of its CET1 
capital, the CBLR bank is not required to deduct the tier 2 qualifying 
instruments. A CBLR bank is required to make a deduction from CET1 
capital or tier 1 capital only if the sum of its investments in the 
capital of an unconsolidated financial institution is in a form that 
would qualify as CET1 capital or tier 1 capital instruments of the CBLR 
bank and the sum exceeds the 25 percent CET1 threshold. The agencies 
believe it is important to continue collecting information on the 
amount of investments in these capital instruments as excessive 
investments similarly could warrant the agencies' use of their 
reservation of authority.
    In proposed item 37, a CBLR bank would be required to report its 
allocated transfer risk reserve (ATRR), as currently calculated and 
reported in Schedule RC-R, Part II, item 30. In proposed items 38.a 
through 38.c, a CBLR bank that has adopted Accounting Standards Update 
(ASU) No. 2016-13 on credit losses must report the amount of any 
allowances for credit losses on purchased credit-deteriorated loans and 
leases held for investment, held-to-maturity debt securities, and other 
financial assets measured at amortized cost, as currently calculated 
and reported in Schedule RC-R, Part II, Memorandum items 4.a through 
4.c. The amount of the ATRR, if any, is necessary to calculate capital 
and surplus and corresponding limits in a number of the OCC's 
regulations, including investment securities limits (12 CFR part 1) and 
lending limits (12 CFR part 32). After an institution adopts ASU 2016-
13, allowances for credit losses on purchased credit-deteriorated 
assets similarly would affect the calculation of these limits. While 
these limits apply directly to institutions supervised by the OCC, a 
number of federal or state laws may apply the OCC's calculation of 
certain limits to state-chartered institutions supervised by the FDIC 
or the Board. Therefore, the agencies are proposing to retain this 
information for all CBLR banks. As CBLR banks would not complete 
Schedule RC-R, Part II, this information would otherwise not be readily 
available for the agencies to calculate the relevant regulatory limits 
for these institutions.\25\
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    \25\ Institutions that are not CBLR banks would not complete 
proposed items 37 and 38.a through 38.c, but would continue to 
report any ATRR and any allowances for credit losses on purchased 
credit-deteriorated loans and leases held for investment, held-to-
maturity debt securities, and other financial assets measured at 
amortized cost in Schedule RC-R, Part II.
---------------------------------------------------------------------------

    Because a CBLR bank would not be subject to the generally 
applicable capital requirements, a CBLR bank would not need to complete 
any of the items in Schedule RC-R, Part I, after proposed item 38, nor 
would the bank need to complete Schedule RC-R, Part II, Risk-Weighted 
Assets.
    In connection with moving the leverage ratio calculations and 
inserting items for the CBLR qualifying criteria in Schedule RC-R, Part 
I, existing items 27 through 35 of Schedule RC-R, Part I, will be 
renumbered as items 39 through 47. Existing items 40 through 43 will be 
renumbered as items 48 through 51, while existing items 46 through 48 
will be renumbered as items 52 through 54. For advanced approaches 
institutions filing the FFIEC 031 Call Report, existing items 45.a and 
45.b for total leverage exposure and the supplementary leverage ratio, 
respectively, will be renumbered as items 55.a and 55.b.
    A CBLR bank would indicate that it has elected to apply the CBLR 
framework by completing Schedule RC-R, Part I, items 32 through 38. 
Institutions not subject to the CBLR framework would be required to 
report all data items in Schedule RC-R, Part I, except for items 32 
through 38.
3. Other Proposed Call Report Revisions Related to the CBLR
    While not specifically part of the planned CBLR final rule, the 
agencies currently collect information in Call Report Schedule RC-C, 
Part I, ``Loans

[[Page 53235]]

and Leases,'' Memorandum item 13, from institutions that have a 
significant amount of construction, land development, and other land 
loans with interest reserves in relation to their total regulatory 
capital as reported as of the previous calendar year-end report date. 
At present, total regulatory capital is defined as total capital 
reported on Schedule RC-R, Part I, item 35 (FFIEC 051) or item 35.a 
(FFIEC 031 or FFIEC 041). While CBLR banks would no longer report their 
total capital in Schedule RC-R, Part I, the agencies believe it is 
still important to collect this information from CBLR banks that have a 
significant amount of construction, land development, and other land 
loans with interest reserves. Therefore, effective March 31, 2021,\26\ 
the agencies propose to revise the reporting threshold for Schedule RC-
C, Part I, Memorandum item 13, for all institutions to reference the 
sum of tier 1 capital as reported in Schedule RC-R, Part I, item 26, 
plus the allowance for loan and lease losses or the allowance for 
credit losses on loan and leases, as applicable, as reported in 
Schedule RC, item 4.c.
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    \26\ For report dates during 2020, the reporting threshold for 
Schedule RC-C, Part I, Memorandum item 13, would be the total 
capital an institution reported in Schedule RC-R, Part I, as of 
December 31, 2019, which will predate the initial reporting under 
the CBLR framework in Schedule RC-R. The first year-end report date 
under the CBLR framework would be December 31, 2020, which would be 
the report date to which a CBLR bank would refer in order to 
determine whether it would need to complete Schedule RC-C, Part I, 
Memorandum item 13, as of each quarter-end report date during 2021.
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C. Proposed Tailoring Rules

1. Background
    On December 21, 2018, the agencies published a notice of proposed 
rulemaking (NPR) proposing to revise the criteria for determining the 
applicability of requirements under the regulatory capital rule, the 
liquidity coverage ratio rule, and the proposed net stable funding 
ratio rule for large U.S. banking organizations (domestic interagency 
tailoring NPR).\27\ The proposal would establish four risk-based 
categories and apply tailored capital and liquidity requirements for 
banking organizations subject to each category.
---------------------------------------------------------------------------

    \27\ 83 FR 66024 (December 21, 2018).
---------------------------------------------------------------------------

    On May 24, 2019, the agencies published an NPR that would revise 
the criteria for determining the applicable regulatory capital 
requirements for certain U.S. intermediate holding companies of foreign 
banking organizations and their depository institution subsidiaries, 
and the application of standardized liquidity requirements with respect 
to the U.S. operations of large foreign banking organizations and 
certain of their depository institution subsidiaries, each according to 
three of the four risk-based categories proposed for U.S. banking 
organizations (foreign interagency tailoring NPR).\28\ Thus, the 
proposal is similar to the domestic interagency tailoring NPR. The 
foreign interagency tailoring NPR also proposed technical amendments to 
certain provisions of the domestic interagency tailoring NPR.
---------------------------------------------------------------------------

    \28\ 84 FR 24296 (May 24, 2019).
---------------------------------------------------------------------------

    Under the proposed approach, the most stringent set of standards 
(Category I) would apply to U.S. global systemically important banks 
(GSIBs). The second set of standards (Category II) would apply to 
banking organizations that are very large or have significant 
international activity. Like Category I, this category would generally 
include standards that are based on standards that reflect agreements 
reached by the Basel Committee on Banking Supervision. The third set of 
standards (Category III) would apply to banking organizations with $250 
billion or more in total consolidated assets that do not meet the 
criteria for Category I or II. The third set of standards would also 
apply to banking organizations with total consolidated assets of $100 
billion or more, but less than $250 billion, that meet or exceed other 
specified risk-based indicators. The fourth set of standards (Category 
IV) would apply to banking organizations with total consolidated assets 
of $100 billion or more that do not meet the thresholds for one of the 
other categories.
    The domestic interagency tailoring and foreign interagency 
tailoring NPRs also describe the capital and liquidity requirements 
that would apply for institutions subject to Category I, II, III, or IV 
capital standards. Based on the proposed capital and liquidity 
requirements that would apply to institutions subject to Category I, 
II, III, or IV capital standards in the domestic interagency tailoring 
and foreign interagency tailoring NPRs, the agencies are proposing to 
amend certain regulatory report forms to clarify the reporting 
requirements for those institutions that would be subject to those 
proposed rules. Specifically, the agencies are proposing changes to 
Call Report Schedule RC-R, Part I, Regulatory Capital Components and 
Ratios, and FFIEC 101 Schedule A, Advanced Approaches Regulatory 
Capital, to provide clarification for institutions subject to Category 
III capital standards.\29\ If modifications are made to the proposed 
tailoring rules when the rules are adopted in final form, the agencies 
would modify the Call Report and FFIEC 101 proposals to incorporate 
such changes. These changes would generally align with the Board's 
proposed amendments to FR Y-9C, Schedule HC-R, Part I, issued in 
conjunction with the Board's domestic tailoring and foreign tailoring 
proposals.\30\
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    \29\ The agencies do not believe reporting form or instructional 
clarifications are needed to reflect capital requirements that would 
apply to institutions subject to Category I, II, or IV capital 
standards under the domestic interagency tailoring and foreign 
interagency tailoring NPRs.
    \30\ See 84 FR 22009 (May 15, 2019).
---------------------------------------------------------------------------

    In addition, the agencies are proposing that all institutions 
subject to Category I, II, or III capital standards would be required 
to file the FFIEC 031 Call Report. While the agencies proposed to 
require all advanced approaches institutions to file the FFIEC 031 Call 
Report in connection with the simplifications rule, the tailoring rules 
would narrow the scope of institutions calculating risk-weighted assets 
under the advanced approaches. The agencies expect this scope revision 
to have little, if any, impact on current institutions, as all 
institutions with total consolidated assets of $100 billion or more or 
with foreign offices already are required to file the FFIEC 031, which 
generally aligns with the standards for Category I, II, and III 
institutions.\31\ Also, modifying the scope of the Call Report in this 
manner would enable the agencies to streamline Schedule RC-R, Part I, 
of the FFIEC 041 report by removing data items that apply only to the 
limited number of current advanced approaches institutions currently 
eligible to file the FFIEC 041 report and to any future institutions 
that would, absent this change in scope, be eligible to file the FFIEC 
041 report.
---------------------------------------------------------------------------

    \31\ Institutions that are subsidiaries of institutions subject 
to Category I, II, or III capital standards also are considered 
Category I, II, or III institutions under the domestic interagency 
tailoring and foreign interagency tailoring NPRs, and would be 
treated similarly for this change in reporting scope.
---------------------------------------------------------------------------

2. Proposed Revisions to Call Report Schedule RC-R, Part I
    In order to implement the clarifications for institutions subject 
to Category III capital standards, as discussed above the agencies 
propose to require all Category III institutions to file the FFIEC 031 
Call Report and to revise the caption for Schedule RC-R, Part I, item 
45, ``Advanced approaches institutions only: Supplementary leverage 
ratio information,'' on the FFIEC 031 Call Report. Specifically, the

[[Page 53236]]

agencies propose to clarify that item 45 (proposed to be renumbered as 
item 55) applies to ``advanced approaches and Category III 
institutions'' on the FFIEC 031 report form. Item 45 would be removed 
from the FFIEC 041 report form. The instructions for Schedule RC-R, 
Part I, item 45 (proposed to be renumbered as item 55), in the FFIEC 
031-FFIEC 041 instruction book also would be revised in the same 
manner. The general instructions for Schedule RC-R, Part I, in the 
FFIEC 031-FFIEC 041 instruction book also would be clarified to 
indicate that Category III institutions are not required to calculate 
risk-weighted assets according to the advanced approaches rule, but are 
subject to the supplementary leverage ratio and countercyclical capital 
buffer.
3. Proposed Revisions to the FFIEC 101
    To implement the clarification for institutions subject to Category 
III capital standards, the agencies propose to revise the instructions 
for the scope of the FFIEC 101. Specifically, the instructions would be 
revised to clarify that top-tier Category III bank holding companies, 
savings and loan holding companies, and insured depository 
institutions, and all U.S. intermediate holding companies, must 
complete FFIEC 101 Schedule A, SLR Tables 1 and 2, only.\32\ All 
Category IV institutions would not complete or file any part of the 
FFIEC 101.
---------------------------------------------------------------------------

    \32\ Any Category III banking organization that is a 
consolidated subsidiary of a top-tier Category III bank holding 
company, savings and loan holding company, or insured depository 
institution would not complete or file any part of the FFIEC 101. 
Those subsidiary banking organizations would report SLR data on 
Schedule RC-R of the Call Report.
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D. Proposed Total Loss Absorbing Capacity Holdings Rule

1. Background
    On April 8, 2019, the agencies published an NPR that would address 
an advanced approaches banking organization's regulatory capital 
treatment of an investment in unsecured debt instruments issued by 
foreign or U.S. global systemically important banks (GSIBs) for the 
purposes of meeting minimum total loss absorbing capacity (TLAC) and, 
where applicable, long-term debt (LTD) requirements, or liabilities 
issued by GSIBs that are pari passu or subordinated to such debt 
instruments (TLAC Holdings NPR).\33\ Under the TLAC Holdings NPR, 
investments by an advanced approaches banking organization in certain 
unsecured debt instruments generally would be subject to deduction from 
the advanced approaches banking organization's regulatory capital if 
such investments exceed certain thresholds. The Board also proposed to 
require that banking organizations subject to minimum TLAC and LTD 
requirements under Board regulations publicly disclose their TLAC and 
LTD issuances in a manner described in the TLAC Holdings NPR.
---------------------------------------------------------------------------

    \33\ 84 FR 13814 (April 8, 2019).
---------------------------------------------------------------------------

    The agencies are proposing changes to Call Report Schedule RC-R, 
Part I, Regulatory Capital Components and Ratios, and FFIEC 101 
Schedule A, Advanced Approaches Regulatory Capital, to implement the 
changes proposed to the agencies' capital rule. If modifications are 
made to the proposed TLAC holdings rule when it is adopted in final 
form, the agencies would modify the Call Report and FFIEC 101 proposals 
to incorporate such changes.
2. Proposed Revisions to Call Report Schedule RC-R, Part I
    Under the TLAC Holdings NPR, advanced approaches banking 
organizations would report the total amount of deductions related to 
investments in own CET1, additional tier 1, and tier 2 capital 
instruments; investments in own covered debt instruments, if 
applicable; reciprocal cross holdings; non-significant investments in 
the capital and covered debt instruments of unconsolidated financial 
institutions that exceed certain thresholds; certain investments in 
excluded covered debt instruments, as applicable; and significant 
investments in the capital and covered debt instruments of 
unconsolidated financial institutions. Any deductions related to 
covered debt instruments and excluded covered debt instruments 
(together, TLAC debt holdings) would be applied at the level of tier 2 
capital under the agencies' existing regulatory capital rule. Any 
required deduction would be made using the ``corresponding deduction 
approach,'' by which an advanced approaches banking organization would 
deduct TLAC debt holdings first from tier 2 capital and, if it had 
insufficient tier 2 capital to make the full requisite deduction, 
deduct the remaining amount from additional tier 1 capital and then, if 
necessary, from CET1 capital.
    In order to implement these proposed changes, the agencies propose 
to make a number of revisions to the instructions for Schedule RC-R, 
Part I, that would be applicable to advanced approaches banking 
organizations and would be included in the FFIEC 031-FFIEC 041 
instruction book. Specifically, the agencies propose to revise the 
instructions for items 11, 17, 24, and 33 (proposed to be renumbered as 
item 45) to effectuate the deductions from regulatory capital for 
advanced approaches banking organizations related to investments in 
covered debt instruments and excluded covered debt instruments. These 
changes would generally align with the Board's proposed amendments to 
FR Y-9C, Schedule HC-R, Part I, issued in conjunction with the TLAC 
Holdings NPR.\34\
---------------------------------------------------------------------------

    \34\ See 84 FR 13823-13824 (April 8, 2019).
---------------------------------------------------------------------------

3. Proposed Revisions to Call Report Schedule RC-R, Part II
    The agencies also are proposing to revise the instructions for 
Schedule RC-R, Part II, that would be applicable to advanced approaches 
banking organizations and would be included in the FFIEC 031-FFIEC 041 
instruction book. Specifically, the agencies propose to revise the 
instructions for items 2.a, 2.b, 7, and 8 to incorporate investments in 
covered debt instruments and excluded debt instruments, as applicable, 
by advanced approaches banking organizations in their calculation of 
risk-weighted assets. These changes would generally align with the 
Board's proposed amendments to FR Y-9C, Schedule HC-R, Part II, issued 
in conjunction with the TLAC Holdings NPR.
4. Proposed Revisions to FFIEC 101 Schedule A
i. Deductions From Regulatory Capital
    The agencies propose to make a number of revisions to the 
instructions for FFIEC 101 Schedule A and add a new data item to this 
schedule. Specifically, the agencies propose to revise the instructions 
for existing items 52 through 54 and add a new data item to effectuate 
any deductions from regulatory capital for advanced approaches banking 
organizations for investments in excluded covered debt instruments, as 
described in Section II.D.2. above. Existing item 56, ``Other 
deductions from tier 2 capital,'' would be renumbered and recaptioned 
as item 56.b, ``All other deductions from tier 2 capital.'' The new 
item would be inserted as item 56.a, ``Investments in excluded covered 
debt instruments,'' which would be applicable only to global 
systemically important bank holding companies (GSIBs) and subsidiaries 
of GSIBs.
ii. LTD and TLAC Amounts, Ratios, and Buffer
    In conjunction with the issuance of the TLAC Holdings NPR, the 
Board also proposed revisions to the FR Y-9C,

[[Page 53237]]

Schedule HC-R, Part I, that would collect information from U.S. GSIBs 
and the intermediate holding companies of foreign GSIBs. Specifically, 
the proposed items would collect information on these holding 
companies' LTD and TLAC amounts, LTD and TLAC ratios, and TLAC buffer.
    Since the minimum LTD and TLAC requirements and TLAC buffer are 
only applied at the holding company-level, the agencies are not 
proposing to amend the FFIEC 101 to include this information. 
Collecting this information in the FFIEC 101 would be a duplicative 
reporting requirement and would only be applicable to a subset of FFIEC 
101 filers. However, the agencies are interested in public feedback on 
this issue, especially if commenters believe including these items 
would enhance or simplify public disclosure.

E. Proposed Revisions to the Supplementary Leverage Ratio for Certain 
Central Bank Deposits of Custodial Banks

1. Background
    On April 30, 2019, the agencies published an NPR that would 
implement section 402 of the EGRRCPA (section 402). Section 402 directs 
the agencies to amend the capital rule \35\ to exclude from the SLR 
certain central bank deposits of custodial banks. Section 402 defines a 
custodial bank as any depository institution holding company 
predominantly engaged in custody, safekeeping, and asset servicing 
activities, including any IDI subsidiary of such a holding company.\36\
---------------------------------------------------------------------------

    \35\ See 12 CFR part 3 (OCC); 12 CFR part 217 (Board); 12 CFR 
part 324 (FDIC).
    \36\ See generally Public Law 115-174, sec. 402.
---------------------------------------------------------------------------

    Under the proposed rulemaking, a depository institution holding 
company would be considered predominantly engaged in custody, 
safekeeping, and asset servicing activities if the U.S. top-tier 
depository institution holding company in the organization has a ratio 
of assets under custody-to-total assets of at least 30:1. The proposal 
would define such a depository institution holding company, together 
with any subsidiary depository institution, as a ``custodial banking 
organization.'' \37\ Under the proposal, a custodial banking 
organization would exclude deposits placed at a ``qualifying central 
bank'' from the denominator of the SLR. For purposes of the proposal, a 
qualifying central bank would mean a Federal Reserve Bank, the European 
Central Bank, or a central bank of a member country of the Organisation 
for Economic Co-operation and Development (OECD) \38\ if the country's 
sovereign exposures qualify for a zero percent risk weight under 
section 32 of the capital rule and the sovereign debt of such member 
country is not in default or has not been in default during the 
previous five years. The amount of central bank deposits that could be 
excluded from the denominator of the SLR would be limited by the amount 
of deposit liabilities on the consolidated balance sheet of the 
custodial banking organization that are linked to fiduciary or custody 
and safekeeping accounts.
---------------------------------------------------------------------------

    \37\ For purposes of this proposed rulemaking, the OCC's capital 
rule would be revised to include a definition of ``custody bank,'' 
defined as a national bank or Federal savings association that is a 
subsidiary of a depository institution holding company that is a 
custodial banking organization under 12 CFR 217.2. Similarly, the 
FDIC's capital rule would be revised to include a definition of 
``custody bank,'' defined as an FDIC-supervised institution that is 
a subsidiary of a depository institution holding company that is a 
custodial banking organization under 12 CFR 217.2.
    \38\ The OECD is an intergovernmental organization founded in 
1961 to stimulate economic progress and global trade. A list of OECD 
member countries is available on the OECD's website, www.oecd.org.
---------------------------------------------------------------------------

    The agencies are proposing changes to the instructions for Call 
Report Schedule RC-R and FFIEC 101 Schedule A, that would implement the 
proposed changes to the agencies' capital rule.\39\ If modifications 
are made to the proposed custodial bank rule when it is adopted in 
final form, the agencies would modify the Call Report and FFIEC 101 
proposals to incorporate such changes.
---------------------------------------------------------------------------

    \39\ In connection with the NPR to implement section 402 of the 
EGRRCPA, the Board will separately propose to make corresponding 
revisions to the Consolidated Financial Statements for Holding 
Companies (FR Y-9C).
---------------------------------------------------------------------------

2. Proposed Revisions to Call Report Schedule RC-R, Part I
    As described in Section II.E.1. above, revisions have been proposed 
to the calculation of the total leverage exposure, which is the 
denominator of the SLR. Currently, the instructions for Schedule RC-R, 
Part I, item 45.a, ``Total leverage exposure,'' reference section 
10(c)(4) of the agencies' capital rule. However, the proposed revisions 
to implement section 402 would allow an organization that qualifies as 
a ``custodial banking organization'' to exclude deposits placed at a 
``qualifying central bank'' from the total leverage exposure, limited 
to the amount of deposit liabilities on the consolidated balance sheet 
of the custodial banking organization that are linked to fiduciary or 
custody and safekeeping accounts. Therefore, if the rule is implemented 
as proposed, the capital rule would be modified through the 
incorporation of section 402. Accordingly, the agencies would make 
corresponding modifications to the instructions for the calculation of 
the total leverage exposure for institutions that qualify as a 
``custodial banking organization'' and the reporting of this exposure 
in Schedule RC-R, Part I, item 45.a (which would become item 54.a, as 
proposed above).
3. Proposed Revisions to FFIEC 101 Schedule A
    Similar to its effect on the Call Report, the agencies' proposal to 
implement section 402, as discussed in section II.E.1. above, would 
also revise the total leverage exposure calculation that would be 
reported on the FFIEC 101 Schedule A. Currently, there are two 
calculations for the total leverage exposure in Schedule A, one is 
contained in SLR Table 1 and the other is in SLR Table 2. The agencies 
invite comment on the addition of a new data item to both tables in 
FFIEC 101 Schedule A for the qualifying central bank deduction. The new 
reporting item would be placed between existing data items 1.7 and 1.8 
in SLR Table 1, with the instructions for the total leverage exposure 
expected to include the new reporting item in the total calculation. 
Similarly, for SLR Table 2, the new reporting item would be placed 
between data items 2.2 and 2.3 and the total leverage exposure would be 
modified to include the new reporting item in the total calculation.

F. Proposed Standardized Approach for Counterparty Credit Risk on 
Derivative Contracts

1. Background
    On December 17, 2018, the agencies published an NPR to implement a 
new approach for calculating the exposure amount of derivative 
contracts under the capital rule: the standardized approach for 
counterparty credit risk (SA-CCR) (SA-CCR proposal).\40\
---------------------------------------------------------------------------

    \40\ 83 FR 64660 (December 17, 2018).
---------------------------------------------------------------------------

    The SA-CCR proposal would replace the current exposure methodology 
(CEM) with SA-CCR in the capital rule for advanced approaches 
institutions. Under the advanced approaches, an advanced approaches 
institution would have to choose either SA-CCR or the internal models 
methodology to calculate the exposure amount of its noncleared and 
cleared derivative contracts and use SA-CCR to determine the risk-
weighted asset amount of its default fund contributions. In addition, 
an advanced approaches institution would be required to use SA-CCR 
(instead of CEM) to calculate the

[[Page 53238]]

exposure amount of its noncleared and cleared derivative contracts and 
to determine the risk-weighted asset amount of its default fund 
contributions under the standardized approach, as well as to determine 
the exposure amount of its derivative contracts for purposes of the 
SLR.
    Under the SA-CCR proposal, a non-advanced approaches institution 
would be able to use either CEM or SA-CCR to calculate the exposure 
amount of its noncleared and cleared derivative contracts and to 
determine the risk-weighted asset amount of its default fund 
contributions under the standardized approach. A Category III banking 
organization would also use SA-CCR for calculating its SLR if it 
chooses to use SA-CCR to calculate its derivative and default fund 
exposures.
    The agencies propose to revise the instructions for Call Report 
Schedule RC-R, Part II, as well as to SLR Table 2 in FFIEC 101 Schedule 
A, to implement the proposed changes to the calculation of the exposure 
amount of derivative contracts under the agencies' capital rule. If 
modifications are made to the SA-CCR proposal when it is adopted in 
final form, the agencies would modify the Call Report and FFIEC 101 
proposals to incorporate such changes.
2. Proposed Revisions to Call Report Schedule RC-R, Part II
    A banking organization must report the notional amount and 
regulatory capital exposure amount of its derivatives exposures in 
Schedule RC-R, Part II. The agencies propose to revise the instructions 
for Schedule RC-R, Part II, consistent with the SA-CCR proposal. 
Generally, the proposed revisions to the reporting of derivatives 
elements in Schedule RC-R, Part II, are driven by the treatment of 
cleared derivatives' variation margin (settled-to-market versus 
collateralized-to-market), netting provisions impacting the 
calculations of notional and exposure amounts, and attributions of 
derivatives to cleared versus noncleared derivatives. The General 
Instructions for Schedule RC-R, Part II, and the instructions for 
Schedule RC-R, Part II, items 20, 21, and Memorandum items 1 through 3 
would be revised.
3. Proposed Revisions to FFIEC 101 Schedule A, SLR Table 2
    An advanced approaches institution must report the exposure amount 
of its derivatives in SLR Table 2 of FFIEC 101 Schedule A. The agencies 
propose to revise the instructions for SLR Table 2 consistent with the 
SA-CCR proposal. In particular, institutions that are required to use 
SA-CCR for the purpose of the SLR would apply the SA-CCR-based exposure 
amount without consideration of the various collateral items currently 
listed in the instructions for SLR Table 2. Institutions that continue 
to use the current exposure method would use the current instructions 
to complete SLR Table 2.

G. High Volatility Commercial Real Estate (HVCRE) Land Development 
Proposal

1. Background
    On September 28, 2018, the agencies published an HVCRE NPR to 
revise the HVCRE exposure definition in section 2 of the capital rule 
\41\ to conform to the statutory definition of an HVCRE ADC loan.\42\ 
Consistent with section 214 of the EGRRCPA, the agencies proposed in 
the HVCRE NPR to exclude credit facilities that finance the 
acquisition, development, or construction of one- to four-family 
residential properties from the definition of HVCRE exposure.
---------------------------------------------------------------------------

    \41\ 12 CFR part 3 (OCC); 12 CFR part 217 (Board); and 12 CFR 
part 324 (FDIC).
    \42\ See 12 CFR 3.2 (OCC); 12 CFR 217.2 (Board); and 12 CFR 
324.2 (FDIC).
---------------------------------------------------------------------------

    Section 214 became effective upon enactment of the EGRRCPA. 
Accordingly, on July 6, 2018, the agencies issued a statement 
(interagency statement), advising institutions that, when determining 
which loans should be subject to a heightened risk weight, they may 
choose to continue to apply the current regulatory definition of HVCRE 
exposure, or they may choose to apply the heightened risk weight only 
to those loans they reasonably believe meet the definition of ``HVCRE 
ADC loan'' set forth in section 214 of the EGRRCPA.\43\ Until the 
agencies take further action, institutions are advised to reference the 
interagency statement for purposes of the HVCRE exposure definition and 
regulatory reporting.
---------------------------------------------------------------------------

    \43\ Board, FDIC, and OCC, Interagency statement regarding the 
impact of the Economic Growth, Regulatory Relief, and Consumer 
Protection Act (EGRRCPA), https://www.federalreserve.gov/newsevents/pressreleases/files/bcreg20180706a1.pdf.
---------------------------------------------------------------------------

    On July 23, 2019, the agencies published the HVCRE Land Development 
NPR,\44\ which would expand upon the HVCRE NPR to revise the definition 
of HVCRE exposure in the capital rule by adding a new paragraph that 
provides that the exclusion for one- to four-family residential 
properties would not include credit facilities that solely finance land 
development activities, such as the laying of sewers, water pipes, and 
similar improvements to land, without any construction of one- to four-
family residential structures. In order for a loan to be eligible for 
this exclusion, the credit facility would be required to include 
financing for construction of one- to four-family residential 
structures. This proposed revision to the capital rule would generally 
align with the instructions for item 1.a.(2) of Call Report Schedule 
RC-C, Part I, and FR Y-9C, Schedule HC-C.
---------------------------------------------------------------------------

    \44\ 84 FR 35344 (July 23, 2019).
---------------------------------------------------------------------------

    Allowing institutions to apply a consistent definition of one- to 
four-family residential property and land development in this manner 
would simplify reporting requirements, reduce burden, and promote 
uniform application of the capital rule.
2. Proposed Revisions to Call Report Schedule RC-R, Part II
    If the agencies adopt a final rule under section 214 of the 
EGRRCPA, such final rule would supersede the July 6, 2018, interagency 
statement and institutions would be required to apply the HVCRE 
definition in that rule. Therefore, the agencies are proposing 
conforming revisions to the instructions for Schedule RC-R, Part II, 
items 4.b and 5.b, in all versions of the Call Report. No revisions to 
the Call Report forms would be necessary.
3. Proposed Revisions to FFIEC 101 Schedule G
    The changes to the HVCRE definition discussed above would also 
affect the instructions for Schedule G--Wholesale Exposure. Therefore, 
the agencies are proposing conforming revisions to the FFIEC 101 
instructions to align with the new HVCRE definition in the final rule 
implementing section 214.

H. Operating Lease Liabilities

    In February 2016, the Financial Accounting Standards Board (FASB) 
issued ASU No. 2016-02, ``Leases,'' which added Topic 842, Leases, to 
the Accounting Standards Codification (ASC). Once ASU 2016-02 is 
effective for an institution, the ASU's accounting requirements, as 
amended by certain subsequent ASUs, supersede ASC Topic 840, Leases.
    The most significant change that ASC Topic 842 makes to the 
previous lease accounting requirements is to lessee accounting. Under 
the lease accounting standards in ASC Topic 840, lessees recognize 
lease assets and lease liabilities on the balance sheet for capital 
leases, but do not recognize operating leases on the balance sheet. The 
lessee accounting model under Topic 842 retains the distinction between 
operating leases and capital leases, which the new standard labels

[[Page 53239]]

finance leases. However, the new standard requires lessees to record a 
right-of-use (ROU) asset and a lease liability on the balance sheet for 
operating leases. (For finance leases, a lessee's lease asset also is 
designated an ROU asset.) In general, the new standard permits a lessee 
to make an accounting policy election to exempt leases with a term of 
one year or less at their commencement date from on-balance sheet 
recognition.
    For institutions that are public business entities, as defined 
under U.S. generally accepted accounting principles (GAAP), ASU 2016-02 
is effective for fiscal years beginning after December 15, 2018, 
including interim reporting periods within those fiscal years. For 
institutions that are not public business entities, at present, the new 
standard is effective for fiscal years beginning after December 15, 
2019, and interim reporting periods within fiscal years beginning after 
December 15, 2020.\45\ Early application of the new standard is 
permitted for all institutions.
---------------------------------------------------------------------------

    \45\ On August 15, 2019, the FASB issued a proposal that would 
amend the effective date of ASC Topic 842 for institutions that are 
not public business entities. As proposed, ASC Topic 842 would be 
effective for such institutions for fiscal years beginning after 
December 15, 2020, and interim reporting periods within fiscal years 
beginning after December 15, 2021. The FASB would retain the 
existing effective date for ASC Topic 842 for public business 
entities. Early adoption would continue to be allowed.
---------------------------------------------------------------------------

    The Call Report Supplemental Instructions for March 2019 \46\ 
stated that a lessee should report lease liabilities for operating 
leases and finance leases, including lease liabilities recorded upon 
adoption of the ASU, in Schedule RC-M, items 5.b, ``Other borrowings,'' 
and 10.b, ``Amount of `Other borrowings' that are secured,'' which is 
consistent with the current Call Report instructions for reporting a 
lessee's obligations under capital leases under ASC Topic 840. In 
response to this instructional guidance, the agencies received 
questions from institutions concerning the reporting of a bank lessee's 
lease liabilities for operating leases. These institutions indicated 
that reporting operating lease liabilities as other liabilities instead 
of other borrowings would better align the reporting of the single 
noninterest expense item for operating leases in the income statement 
(which is the presentation required by ASC Topic 842) with their 
balance sheet classification and would be consistent with how these 
institutions report operating lease liabilities internally.
---------------------------------------------------------------------------

    \46\ https://www.ffiec.gov/pdf/FFIEC_forms/FFIEC031_FFIEC041_FFIEC051_suppinst_201903.pdf.
---------------------------------------------------------------------------

    The agencies have considered the views expressed by these 
institutions and propose to require that operating lease liabilities be 
reported on the Call Report balance sheet in Schedule RC, item 20, 
``Other liabilities.'' In Schedule RC-G, Other Liabilities, operating 
lease liabilities would be reported in item 4, ``All other 
liabilities.'' In subitems of Schedule RC-G, item 4, institutions must 
itemize and describe any components of this item in amounts greater 
than $100,000 that exceed 25 percent of the amount reported in item 4. 
Because of the expected prevalence of operating lease liabilities, the 
agencies also propose to add a new subitem with the preprinted caption 
``Operating lease liabilities'' to item 4 to facilitate the reporting 
of these liabilities when their amount exceeds the reporting threshold 
for itemizing and describing components of ``All other liabilities.''
    As described in the Call Report Supplemental Instructions for June 
2019, while the agencies are in the process of proposing this 
instructional revision, the agencies are permitting institutions to 
report the lease liability for operating leases in either Schedule RC-
G, item 4, ``All other liabilities,'' or Schedule RC-M, item 5.b, 
``Other borrowings.'' \47\ If an institution chooses the latter 
reporting treatment, the amount of operating lease liabilities reported 
in Schedule RC-M, item 5.b, should also be reported in Schedule RC-M, 
item 10.b, ``Amount of `Other borrowings' that are secured,'' and this 
amount should not be reported in Schedule RC-O, item 7, as ``Unsecured 
`Other borrowings'.'' An institution may choose to amend the reporting 
of operating lease liabilities in its Call Report for March 31, 2019, 
consistent with this instructional guidance.
---------------------------------------------------------------------------

    \47\ See the Call Report Supplemental Instructions for June 
2019, https://www.ffiec.gov/pdf/FFIEC_forms/FFIEC031_FFIEC041_FFIEC051_suppinst_201906.pdf.
---------------------------------------------------------------------------

I. Reporting Home Equity Lines of Credit That Convert From Revolving to 
Non-Revolving Status

    Institutions report the amount outstanding under revolving, open-
end lines of credit secured by 1-4 family residential properties 
(commonly known as home equity lines of credit or HELOCs) in item 
1.c.(1) of Schedule RC-C, Part I, Loans and Leases. The amounts of 
closed-end loans secured by 1-4 family residential properties are 
reported in Schedule RC-C, Part I, item 1.c.(2)(a) or (b), depending on 
whether the loan is a first or a junior lien.\48\
---------------------------------------------------------------------------

    \48\ Institutions report additional information on open-end and 
closed-end loans secured by 1-4 family residential properties in 
certain other Call Report schedules in accordance with the loan 
category definitions in Schedule RC-C, Part I, items 1.c.(1), 
1.c.(2)(a), and 1.c.(2)(b).
---------------------------------------------------------------------------

    A HELOC is a line of credit secured by a lien on a 1-4 family 
residential property that generally provides a draw period followed by 
a repayment period. During the draw period, a borrower has revolving 
access to unused amounts under a specified line of credit. During the 
repayment period, the borrower can no longer draw on the line of 
credit, and the outstanding principal is either due immediately in a 
balloon payment or repaid over the remaining loan term through monthly 
payments. Because the Call Report instructions do not address the 
reporting treatment for a home equity line of credit when it reaches 
its end-of-draw period and converts from revolving to nonrevolving 
status, the agencies have found diversity in how these credits are 
reported in Schedule RC-C, Part I, items 1.c.(1), 1.c.(2)(a), and 
1.c.(2)(b), and in other Call Report items that use the definitions of 
these three loan categories.
    In September 2015, to address this absence of instructional 
guidance and promote consistency in reporting, the agencies proposed to 
clarify the instructions for reporting loans secured by 1-4 family 
residential properties by specifying that after a revolving open-end 
line of credit has converted to non-revolving closed-end status, the 
loan should be reported as closed-end in Schedule RC-C, Part I, item 
1.c.(2)(a) or (b), as appropriate.\49\ As discussed in a subsequent 
notice,\50\ the agencies received a number of comments that raised 
concerns with the proposal. In particular, some commenters stated that 
reclassifying HELOCs after the draw period could raise operational 
challenges for institutions' loan systems that would require additional 
time to implement. Based on the feedback received, the agencies did not 
proceed with their proposed instructional clarification at that time.
---------------------------------------------------------------------------

    \49\ See 80 FR 56539 (September 18, 2015).
    \50\ See 81 FR 45357 (July 13, 2016).
---------------------------------------------------------------------------

    The agencies continue to believe that it is important to collect 
accurate data on loans secured by 1-4 family residential properties in 
the Call Report. Consistent classification of HELOCs based on the 
status of the draw period is particularly important for the agencies' 
safety and soundness monitoring. Due to the structure of HELOCs 
discussed above, borrowers generally are not required to make

[[Page 53240]]

principal repayments during the draw period, which may create a 
financial shock for borrowers when they must make a balloon payment or 
begin regular monthly repayments after the draw period. With some 
institutions reporting HELOCs past the draw period as revolving, this 
increases the amounts outstanding, charge-offs, recoveries, past dues, 
and nonaccruals reported in the open-end category relative to the 
amounts reported by institutions that treat HELOCs past the draw period 
as closed-end, which makes the data less useful for agency comparisons 
and safety and soundness monitoring. In addition, in ASU No. 2019-
04,\51\ the FASB amended ASC Subtopic 326-20 on credit losses to 
require that, when presenting credit quality disclosures in notes to 
financial statements prepared in accordance with U.S. GAAP, an entity 
must separately disclose line-of-credit arrangements that are converted 
to term loans from line-of-credit arrangements that remain in revolving 
status. After further review, the agencies have determined that there 
would be little or no impact to the regulatory capital calculations, 
FDIC deposit insurance assessments, or other regulatory reporting 
requirements as a result of this clarification, which were other 
concerns previously raised by commenters.
---------------------------------------------------------------------------

    \51\ ASU No. 2019-04, ``Codification Improvements to Topic 326, 
Financial Instruments--Credit Losses, Topic 815, Derivatives and 
Hedging, and Topic 825, Financial Instruments,'' issued in April 
2019.
---------------------------------------------------------------------------

    Therefore, the agencies are re-proposing to clarify the Call Report 
instructions for Schedule RC-C, Part I, items 1.c.(1), 1.c.(2)(a), and 
1.c.(2)(b), to state that revolving open-end lines of credit that have 
converted to non-revolving closed-end status should be reported as 
closed-end loans. The effect of this clarification would extend to the 
instructions for the following data items that reference the Schedule 
RC-C, Part I, loan category definitions for open-end and closed-end 
loans secured by 1-4 family residential properties:
     Schedule RI-B, Part I, items 1.c.(1), 1.c.(2)(a), and 
1.c.(2)(b);
     Schedule RC-C, Part I, Memorandum items 2.a.(1) through 
(6) and 2.b.(1) through (6);
     Schedule RC-M, items 13.a.(1)(c)(1), 13.a.(1)(c)(2)(a), 
and 13.a.(1)(c)(2)(b) on the FFIEC 031 and FFIEC 041;
     Schedule RC-N, items 1.c.(1), 1.c.(2)(a), and 1.c.(2)(b);
     Schedule RC-N, items 12.a.(3)(a), 12.a.(3)(b)(1), and 
12.a.(3)(b)(2) on the FFIEC 031 and FFIEC 041;
     Schedule RC-O, Memorandum items 18.b, 18.c, and 18.d on 
the FFIEC 031 and FFIEC 041;
     Schedule RC-S, Memorandum items 2.a, 2.b, and 2.c on the 
FFIEC 031 and FFIEC 041; and
     Schedule SU, items 6 and 6.a on the FFIEC 051.
    This instructional clarification would not apply to the reporting 
of asset-backed securities collateralized by HELOCs in Schedule RC-B, 
Memorandum item 5.b, on the FFIEC 031 and FFIEC 041 and Schedule RC-D, 
Memorandum item 5.b on the FFIEC 031 and securitizations of closed-end 
1-4 family residential loans and home equity lines in Schedule RC-S, 
columns A and B, on the FFIEC 031, and columns A and G on the FFIEC 
041.
    To address prior comments regarding the time needed for any systems 
changes, the agencies propose that compliance with the clarified 
instructions would not be required until the March 31, 2021, report 
date. Institutions not currently reporting in accordance with the 
clarified instructions would be permitted, but not required, to report 
in accordance with the clarified instructions before that date.

III. Timing

    The agencies propose to make the capital-related reporting changes 
in this notice effective the same quarters as the effective dates of 
the various currently final or potential final capital rules discussed 
in this notice. The agencies also propose that the changes in the scope 
of the FFIEC 031 Call Report and in the reporting of operating lease 
liabilities would be effective March 31, 2020, and the changes in the 
reporting of construction, land development, and other land loans with 
interest reserves and home equity lines of credit would be effective 
March 31, 2021. The agencies invite comment on any difficulties that 
institutions would expect to encounter in implementing the systems 
changes necessary to accommodate the proposed revisions to the Call 
Reports and the FFIEC 101 report or the minimum time required to make 
systems changes to implement these changes.
    The specific wording of the captions for the new or revised Call 
Report data items discussed in this proposal and the numbering of these 
data items should be regarded as preliminary.

IV. Request for Comment

    Public comment is requested on all aspects of this joint notice. 
Comment is specifically invited on:
    (a) As an alternative to the approach proposed for reporting in 
Schedule RC-R, Part I, in the FFIEC 041 and FFIEC 051 Call Reports for 
March 31, 2020, by non-advanced approaches institutions that choose not 
to early adopt the simplifications rule (discussed in Section II.A.1. 
above), which would have the agencies provide instructions on how such 
institutions should complete this schedule as of that report date, 
whether the agencies should instead provide separate columns in 
Schedule RC-R, Part I, in the FFIEC 041 and FFIEC 051 Call Reports for 
the March 31, 2020, report date that would enable institutions to 
report in either the column for the simplifications rule or the column 
for the current capital rule for that report date? This alternative 
approach would be similar to the proposed two-column approach in 
Schedule RC-R, Part I, for the FFIEC 031 Call Report, but the two 
columns would be included in the FFIEC 041 and FFIEC 051 Call Reports 
only for the March 31, 2020, report date and the second column would be 
removed from these two reports effective June 30, 2020, when the 
simplifications rule would apply to all non-advanced approaches 
institutions.
    (b) For advanced approaches banking organizations, whether the 
agencies should include items related to LTD and TLAC amounts, ratios, 
and the TLAC buffer in the FFIEC 101. Please describe the benefits and 
drawbacks of including these items in the FFIEC 101.
    (c) For the reporting of derivatives data in Call Report Schedules 
RC-D, RC-F, RC-G, RC-L (or SU on the 051), and RC-R, Part II, the 
degree to which the agencies should align the reporting approaches 
applicable to these schedules. In particular, please describe how the 
agencies can ensure data consistency while reducing the burden of 
reporting the fair values, notional amounts, and exposure amounts of 
derivatives for settled-to-market and collateralized-to-market 
derivatives in Schedules RC-D, RC-F, RC-G, RC-L (or SU on the 051), and 
RC-R, Part II, as applicable. Please address whether the agencies 
should adopt a consistent classification of derivatives by asset class 
(e.g., interest rate, energy, and volatility derivative contracts) and 
by product type (e.g., cleared swap, futures contract, exchange-traded 
option).
    (d) Whether the proposed revisions to the collections of 
information that are the subject of this notice are necessary for the 
proper performance of the agencies' functions, including whether the 
information has practical utility;
    (e) The accuracy of the agencies' estimates of the burden of the

[[Page 53241]]

information collections as they are proposed to be revised, including 
the validity of the methodology and assumptions used;
    (f) Ways to enhance the quality, utility, and clarity of the 
information to be collected;
    (g) Ways to minimize the burden of information collections on 
respondents, including through the use of automated collection 
techniques or other forms of information technology; and
    (h) Estimates of capital or start-up costs and costs of operation, 
maintenance, and purchase of services to provide information.
    Comments submitted in response to this joint notice will be shared 
among the agencies.

    Dated: October 1, 2019.
Theodore J. Dowd,
Deputy Chief Counsel, Office of the Comptroller of the Currency.
    Board of Governors of the Federal Reserve System, September 30, 
2019.
Ann E. Misback,
Secretary of the Board.

Federal Deposit Insurance Corporation.
    Dated at Washington, DC, on September 30, 2019.
Robert E. Feldman,
Executive Secretary.
[FR Doc. 2019-21659 Filed 10-3-19; 8:45 am]
BILLING CODE 4810-33-P; 6210-01-P; 6714-01-P