83_FR_39150 83 FR 38997 - Risk-Based Capital-Supplemental Rule

83 FR 38997 - Risk-Based Capital-Supplemental Rule

NATIONAL CREDIT UNION ADMINISTRATION

Federal Register Volume 83, Issue 153 (August 8, 2018)

Page Range38997-39004
FR Document2018-16888

The NCUA Board (Board) is seeking comment on a proposed rule that would amend the NCUA's previously revised regulations regarding prompt corrective action (PCA). The proposal would delay the effective date of the NCUA's October 29, 2015 final rule regarding risk-based capital (2015 Final Rule) for one year, moving the effective date from January 1, 2019 to January 1, 2020. During the extended delay period, the NCUA's current PCA requirements would remain in effect. The proposal would also amend the definition of a ``complex'' credit union adopted in the 2015 Final Rule for risk-based capital purposes by increasing the threshold level for coverage from $100 million to $500 million. These proposed changes would provide covered credit unions and the NCUA with additional time to prepare for the rule's implementation, and would exempt an additional 1,026 credit unions from the rule without subjecting the National Credit Union Share Insurance Fund (NCUSIF) to undue risk.

Federal Register, Volume 83 Issue 153 (Wednesday, August 8, 2018)
[Federal Register Volume 83, Number 153 (Wednesday, August 8, 2018)]
[Proposed Rules]
[Pages 38997-39004]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-16888]


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NATIONAL CREDIT UNION ADMINISTRATION

12 CFR Part 702

RIN 3133-AE90


Risk-Based Capital--Supplemental Rule

AGENCY: National Credit Union Administration (NCUA).

ACTION: Proposed rule.

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SUMMARY: The NCUA Board (Board) is seeking comment on a proposed rule 
that would amend the NCUA's previously revised regulations regarding 
prompt corrective action (PCA). The proposal would delay the effective 
date of the NCUA's October 29, 2015 final rule regarding risk-based 
capital (2015 Final Rule) for one year, moving the effective date from 
January 1, 2019 to January 1, 2020. During the extended delay period, 
the NCUA's current PCA requirements would remain in effect. The 
proposal would also amend the definition of a ``complex'' credit union 
adopted in the 2015 Final Rule for risk-based capital purposes by 
increasing the threshold level for coverage from $100 million to $500 
million. These proposed changes would provide covered credit unions and 
the NCUA with additional time to prepare for the rule's implementation, 
and would exempt an additional 1,026 credit unions from the rule 
without subjecting the National Credit Union Share Insurance Fund 
(NCUSIF) to undue risk.

DATES: Comments must be received by September 7, 2018.

ADDRESSES: You may submit written comments, identified by RIN 3133-
AE90, by any of the following methods (Please send comments by one 
method only):
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the instructions for submitting comments.
     NCUA website: http://www.ncua.gov/Legal/Regs/Pages/PropRegs.aspx. Follow the instructions for submitting comments.
     Email: Address to [email protected]. Include ``[Your 
name]--Comments on Proposed Rule: Risk-Based Capital--Supplemental 
Proposal'' in the email subject line.
     Fax: (703) 518-6319. Use the subject line described above 
for email.
     Mail: Address to Gerard Poliquin, Secretary of the Board, 
National Credit Union Administration, 1775 Duke Street, Alexandria, 
Virginia 22314-3428.
     Hand Delivery/Courier: Same as mail address.
    You can view all public comments on the NCUA's website at http://www.ncua.gov/Legal/Regs/Pages/PropRegs.aspx as submitted, except for 
those we cannot post for technical reasons. The NCUA will not edit or 
remove any identifying or contact information from the public comments 
submitted. You may inspect paper copies of comments in the NCUA's law 
library at 1775 Duke Street, Alexandria, Virginia 22314, by appointment 
weekdays between 9 a.m. and 3 p.m. To make an appointment, call (703) 
518-6546, or send an email to [email protected].

FOR FURTHER INFORMATION CONTACT: Policy and Analysis: Julie Cayse, 
Director, Division of Risk Management, Office of Examination and 
Insurance, at (703) 518-6360; Kathryn Metzker, Loss/Risk Analyst, 
Division of Risk Management, Office of Examination and Insurance, at 
(703) 548-2456; Julie Decker, Loss/Risk Analyst, Division of Risk 
Management, Office of Examination and Insurance, at (703) 518-3684; 
Aaron Langley, Risk Management Officer, Division of Analytics and 
Surveillance, Office of Examination and Insurance, at (703) 518-6387; 
Legal: John Brolin, Staff Attorney, Office of General Counsel, at (703) 
518-6540; or by mail at National Credit Union Administration, 1775 Duke 
Street, Alexandria, VA 22314.

SUPPLEMENTARY INFORMATION: 

I. Introduction

    The NCUA's primary mission is to ensure the safety and soundness of 
federally insured credit unions. The agency performs this function by 
examining and supervising all federal credit unions, participating in 
the examination and supervision of federally insured, state-chartered 
credit unions in coordination with state regulators, and insuring 
members' accounts at federally insured credit unions.\1\ In its role as 
administrator of the NCUSIF, the NCUA insures and regulates 
approximately 5,573 federally insured credit unions, holding total 
assets exceeding $1.4 trillion and representing approximately 111 
million members.\2\
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    \1\ As of December 31, 2017, within the nine states that allow 
privately insured credit unions, approximately 116 state-chartered 
credit unions are privately insured and are not subject to the 
NCUA's regulation and oversight.
    \2\ Based on December 31, 2017 Call Report Data.
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    At its October 2015 meeting, the Board issued the 2015 Final Rule 
to amend Part 702 of the NCUA's PCA regulations to require that credit 
unions taking certain risks hold capital commensurate with those 
risks.\3\ The risk-based capital provisions of the 2015 Final Rule 
apply only to federally insured, natural-person credit unions with 
quarter-end total assets exceeding $100 million. The overarching intent 
of the 2015 Final Rule is to reduce the likelihood that a relatively 
small number of high-risk outlier credit unions would exhaust their 
capital and cause large losses to the NCUSIF. Under

[[Page 38998]]

the Federal Credit Union Act (FCUA), federally insured credit unions 
are collectively responsible for replenishing losses to the NCUSIF.\4\
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    \3\ 80 FR 66625 (Oct. 29, 2015).
    \4\ See 12 U.S.C. 1782(c)(2)(A) (The FCUA requires that each 
federally insured credit unions to pay a federal share insurance 
premium equal to a percentage of the credit union's insured shares 
to ensure that the NCUSIF has sufficient reserves to pay potential 
share insurance claims by credit union members, and to provide 
assistance in connection with the liquidation or threatened 
liquidation of federally insured credit unions in troubled 
condition.).
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    The 2015 Final Rule restructures the NCUA's PCA regulations and 
makes various revisions, including amending the agency's current risk-
based net worth requirement by replacing the risk based net worth ratio 
with a new risk-based capital ratio for federally insured, natural-
person credit unions (credit unions). The risk-based capital 
requirements set forth in the 2015 Final Rule are more consistent with 
the NCUA's risk-based capital ratio measure for corporate credit unions 
and, as the law requires, are more comparable to the regulatory risk-
based capital measures used by the Federal Deposit Insurance 
Corporation (FDIC), Board of Governors of the Federal Reserve System, 
and Office of the Comptroller of Currency (Other Banking Agencies). The 
2015 Final Rule also eliminates several provisions in the NCUA's 
current PCA regulations, including provisions related to the regular 
reserve account, risk-mitigation credits, and alternative risk weights.
    The 2015 Final Rule is currently set to become effective on January 
1, 2019. The NCUA delayed the effective date until January 1, 2019 to 
provide credit unions and the NCUA sufficient time to make the 
necessary adjustments, such as systems, processes, and procedures; to 
reduce the burden on affected credit unions.

II. Legal Authority

    In 1998, Congress enacted the Credit Union Membership Access Act 
(CUMAA).\5\ Section 301 of CUMAA added section 216 to the FCUA,\6\ 
which required the Board to adopt by regulation a system of PCA to 
restore the net worth of credit unions that become inadequately 
capitalized.\7\ Section 216(b)(1)(A) requires the Board to adopt by 
regulation a system of PCA for federally insured credit unions 
``consistent with'' section 216 of the FCUA and ``comparable to'' 
section 38 of the Federal Deposit Insurance Act (FDI Act).\8\ Section 
216(b)(1)(B) requires that the Board, in designing the PCA system, also 
take into account the ``cooperative character of credit unions'' (i.e., 
credit unions are not-for-profit cooperatives that do not issue capital 
stock, must rely on retained earnings to build net worth, and have 
boards of directors that consist primarily of volunteers).\9\ The Board 
initially implemented the required system of PCA in 2000,\10\ primarily 
in Part 702 of the NCUA's Regulations, and most recently made 
substantial updates to the regulation in October 2015.\11\
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    \5\ Public Law 105-219, 112 Stat. 913 (1998).
    \6\ 12 U.S.C. 1790d.
    \7\ The risk-based net worth requirement for credit unions 
meeting the definition of ``complex'' was first applied on the basis 
of data in the Call Report reflecting activity in the first quarter 
of 2001. 65 FR 44950 (July 20, 2000). The NCUA's risk-based net 
worth requirement has been largely unchanged since its 
implementation, with the following limited exceptions: revisions 
were made to the rule in 2003 to amend the risk-based net worth 
requirement for MBLs, 68 FR 56537 (Oct. 1, 2003); revisions were 
made to the rule in 2008 to incorporate a change in the statutory 
definition of ``net worth,'' 73 FR 72688 (Dec. 1, 2008); revisions 
were made to the rule in 2011 to expand the definition of ``low-risk 
assets'' to include debt instruments on which the payment of 
principal and interest is unconditionally guaranteed by NCUA, 76 FR 
16234 (Mar. 23, 2011); and revisions were made in 2013 to exclude 
credit unions with total assets of $50 million or less from the 
definition of ``complex'' credit union, 78 FR 4033 (Jan. 18, 2013).
    \8\ 12 U.S.C. 1790d(b)(1)(A); see also 12 U.S.C. 1831o (Section 
38 of the FDI Act setting forth the PCA requirements for banks).
    \9\ 12 U.S.C. 1790d(b)(1)(B).
    \10\ 12 CFR part 702; see also 65 FR 8584 (Feb. 18, 2000) and 65 
FR 44950 (July 20, 2000).
    \11\ 80 FR 66625 (Oct. 29, 2015).
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    The purpose of section 216 of the FCUA is to ``resolve the problems 
of [federally] insured credit unions at the least possible long-term 
loss to the [NCUSIF].'' \12\ To carry out that purpose, Congress set 
forth a basic structure for PCA in section 216 that consists of three 
principal components: (1) A framework combining mandatory actions 
prescribed by statute with discretionary actions developed by the NCUA; 
(2) an alternative system of PCA to be developed by the NCUA for credit 
unions defined as ``new;'' and (3) a risk-based net worth requirement 
to apply to credit unions the NCUA defines as ``complex.''
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    \12\ 12 U.S.C. 1790d(a)(1).
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    Among other things, section 216(c) of the FCUA requires the NCUA to 
use a credit union's net worth ratio to determine its classification 
among five ``net worth categories'' set forth in the FCUA.\13\ Section 
216(o) generally defines a credit union's ``net worth'' as its retained 
earnings balance,\14\ and a credit union's ``net worth ratio,'' as the 
ratio of its net worth to its total assets.\15\ As a credit union's net 
worth ratio declines, so does its classification among the five net 
worth categories, thus subjecting it to an expanding range of mandatory 
and discretionary supervisory actions.\16\
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    \13\ 12 U.S.C. 1790d(c).
    \14\ 12 U.S.C. 1790d(o)(2).
    \15\ 12 U.S.C. 1790d(o)(3).
    \16\ 12 U.S.C. 1790d(c)-(g); 12 CFR 702.204(a)-(b).
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    Section 216(d)(1) of the FCUA requires that the NCUA's system of 
PCA include, in addition to the statutorily defined net worth ratio 
requirement applicable to federally insured natural-person credit 
unions, ``a risk-based net worth \17\ requirement for insured credit 
unions that are complex, as defined by the Board. . . .'' \18\ The FCUA 
directs the NCUA to base its definition of ``complex'' credit unions 
``on the portfolios of assets and liabilities of credit unions.'' \19\ 
It also requires the NCUA to design a risk-based net worth requirement 
to apply to such ``complex'' credit unions.\20\
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    \17\ For purposes of this rulemaking, the term ``risk-based net 
worth requirement'' is used in reference to the statutory 
requirement for the Board to design a capital standard that accounts 
for variations in the risk profile of complex credit unions. The 
term ``risk-based capital ratio'' is used to refer to the specific 
standards established in the 2015 Final Rule to function as criteria 
for the statutory risk-based net worth requirement. The term ``risk-
based capital ratio'' is also used by the Other Banking Agencies and 
the international banking community when referring to the types of 
risk-based requirements that are addressed in the 2015 Final Rule. 
This change in terminology throughout the proposal would have no 
substantive effect on the requirements of the FCUA, and is intended 
only to reduce confusion for the reader.
    \18\ 12 U.S.C. 1790d(d)(1).
    \19\ 12 U.S.C. 1790d(d).
    \20\ Id.
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III. Proposed Rule

    Under Sec.  702.103 of the NCUA's 2015 Final Rule, a credit union 
is defined as ``complex'' and the NCUA's risk-based capital ratio 
measure is applicable only if the credit union's quarter-end total 
assets exceed $100 million, as reflected in its most recent Call 
Report. Consistent with the spirit and intent of Executive Order 13777, 
the NCUA further analyzed the impact of the NCUA's risk-based capital 
requirements and the portfolios of assets and liabilities of credit 
unions to identify potential ways to reduce regulatory burden on credit 
unions.\21\
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    \21\ The Board has always intended to periodically review the 
threshold of a complex credit union, as noted in the preamble to the 
2015 proposed Risk Based Capital Rule. 80 FR 4339, 4378 (January 27, 
2015).
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    Based on the NCUA's analysis, which is discussed in more detail 
below, the Board believes that $500 million in total assets would be a 
more appropriate threshold level for defining a complex credit union, 
and therefore subjecting it to the risk-based capital requirement. 
Increasing the threshold level to $500 million in assets would reduce

[[Page 38999]]

regulatory burden on credit unions by more closely tailoring the 
applicability of the NCUA's risk-based capital requirement to cover 
only those credit unions that, if they failed, individually could 
present an undue risk of loss to the NCUSIF. This amendment would 
exempt an additional 1,026 credit unions--a total of 90 percent \22\ of 
all credit unions--from the 2015 Final Rule's risk-based capital 
requirements. However, approximately 85 percent of the complex assets 
and liabilities and 76 percent of the total assets in the credit union 
system would still be subject to the risk-based capital 
requirement.\23\ Accordingly, consistent with requirements of section 
216(d)(1) of the FCUA, proposed Sec.  702.103 would provide that, for 
purposes of Sec.  702.102, a credit union is defined as ``complex,'' 
and a risk-based capital ratio requirement is applicable, only if the 
credit union's quarter-end total assets exceed $500 million, as 
reflected in its most recent Call Report.
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    \22\ Based on December 31, 2017 Call Report data. For 
comparison, if the threshold were to remain at $100 million about 72 
percent of all credit unions would be exempt.
    \23\ For comparison, if the threshold were to remain at $100 
million about 98 percent of the complex assets and liabilities and 
93 percent of the total assets in the credit union system would be 
subject to the risk based capital requirement.
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    Under the 2015 Final Rule, the NCUA determined that credit unions 
exceeding the $100 million asset-size threshold had portfolios of 
assets and liabilities that were complex based on the products and 
services in which such credit unions engaged. As explained further 
below, the $100 million asset-size threshold was developed as a proxy 
measure based on a detailed analysis performed by the NCUA. The 
threshold set forth a clear demarcation line, above which the NCUA 
determined all credit unions engaged in complex activities, and where 
almost all such credit unions (99 percent) were involved in multiple 
complex activities.\24\ The NCUA continues to believe that using a 
single asset-size threshold is appropriate, as it is clear, logical, 
and easy to administer. Moreover, using a single asset-size threshold 
provides regulatory relief for smaller institutions, and eliminates the 
potential unintended consequences of having a checklist of activities 
that would determine complexity on an institution-by-institution basis.
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    \24\ 80 FR 66625, 66663 (Oct. 29, 2015).
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    The $100 million asset threshold adopted in the 2015 Final Rule for 
determining whether a credit union is complex was based on a complexity 
index (original complexity index or OCI). The OCI counted the number of 
complex products and services provided by credit unions based on the 
following indicators:

 Member Business Loans
 Participation Loans
 Interest-Only Loans
 Indirect Loans
 Real Estate Loans
 Non-Federally Guaranteed Student Loans
 Investments with Maturities of Greater than Five Years (where 
the investments are greater than one percent of total assets)
 Non-Agency Mortgage-Backed Securities
 Non-Mortgage Related Securities With Embedded Options
 Collateralized Mortgage Obligations/Real Estate Mortgage 
Investment Conduits
 Commercial Mortgage-Related Securities
 Borrowings (Draws Against Lines of Credit, Borrowing 
Repurchase Transactions, Other Notes, Promissory Notes, and Interest 
Payable)
 Repurchase Transactions
 Derivatives
 Internet Banking
    As discussed in more detail in the 2015 Final Rule, these products 
and services were determined by the NCUA to be good indicators of 
complexity.\25\
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    \25\ 80 FR 66625, 66663 (Oct. 29, 2015). The 2015 Final Rule 
states ``For the purpose of defining a complex credit union, assets 
include tangible and intangible items that are economic resources 
(products and services) that are expected to produce economic 
benefit (income), and liabilities are obligations (expenses) the 
credit union has to outside parties. The Board recognizes there are 
products and services--which under GAAP are reflected as the credit 
unions' portfolio of assets and liabilities--in which credit unions 
are engaged that are inherently complex based on the nature of their 
risk and the expertise and operational demands necessary to manage 
and administer such activities effectively. Thus, credit unions 
offering such products and services have complex portfolios of 
assets and liabilities for purposes of NCUA's risk-based net worth 
requirement.''
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    To define ``complex'' credit unions for the 2015 Final Rule, the 
NCUA used the original complexity index to analyze June 30, 2014 and 
March 31, 2015 Call Report data. Based on the OCI, for credit unions 
with more than $100 million in assets, 100 percent engaged in offering 
at least one complex activity; 99 percent engaged in two or more 
complex activities; and 87 percent engaged in four or more complex 
activities. Accordingly, the Board determined it was appropriate to set 
the asset size threshold for ``complex'' credit unions at $100 million 
in total assets, subjecting credit unions with more than $100 million 
in assets to the NCUA's risk-based capital requirements.
    As discussed in more detail below, the OCI did not take into 
account the volume of the complex activity engaged in by such credit 
unions.
    Following a careful review of the 2015 Final Rule by the NCUA's 
regulatory reform task force,\26\ the Board is now proposing to revise 
the original complexity index (revised complexity index or RCI), and to 
apply a new complexity ratio (complexity ratio or CR) for analyzing the 
portfolios of assets and liabilities of credit unions to determine 
which are ``complex.'' The RCI would amend 6 of the indicators in the 
original complexity index so the index will more accurately reflect 
``complexity'' in credit unions and take into account certain 
regulatory changes that were made after the 2015 Final Rule was 
approved. The revised complexity index would be the same as the 
original complexity index, with the following six changes:
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    \26\ See 82 FR 39702, 39706 (Aug. 22, 2017).
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     Replace the indicator for ``member business loans'' with 
an indicator for ``commercial loans'' to reflect changes to the NCUA's 
member business lending rule,\27\ and current Call Report data 
collection requirements.
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    \27\ See 12 CFR 723.2; and 81 FR 13529, 13538 (March 14, 2016).
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     Replace the indicator for ``participation loans'' (which 
included participation loans sold and participation loans held) with an 
indicator for ``participation loans sold'' to restrict the indicator to 
the most complex component of participation loans.
     Replace the indicator for ``interest-only loans'' to 
exclude first-lien mortgages. The remaining interest only loans include 
complex payment options. For example, only requiring monthly payments 
of interest during draw periods.
     Remove the indicator for ``internet banking'' because it 
has become a typical mechanism for members to transact business with 
most credit unions, with 78 percent of credit unions engaging in some 
type of internet banking. Also, it is not an asset or liability--
therefore there is no suitable way to translate the volume into a 
financial measure for purposes of defining complex.
     Remove the indicator for ``investments with maturities 
greater than five years (where the investments are greater than one 
percent of total assets)'' because the indicator is adequately captured 
in the other index components.
     Replace the indicator for ``real estate loans (where the 
loans are greater than five percent of assets and/or sold mortgages)'' 
with an indicator for ``sold

[[Page 39000]]

mortgages'' to account for the most complex component of real estate 
loans.
    The NCUA believes the revised complexity index would provide a more 
accurate methodology, based on the assets and liabilities of credit 
unions, for identifying when credit unions engage in complex activities 
and defining credit unions as ``complex.'' Table 1 shows that, among 
credit unions with $500 million or more in total assets, 100 percent 
engage in at least one complex activity, and 96 percent engage in three 
or more complex activities.

                                      Table 1--Revised Complexity Index by Asset Category, 2017Q4 Call Report Data
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                                                   Number of
                 Asset category                      credit      Average       Median     Index >=1    Index >=2    Index >=3    Index >=5    Index >=6
                                                     unions    index value  index value      (%)          (%)          (%)          (%)          (%)
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<$100M..........................................        4,016          0.8          0.0           41           21           10            2            1
$100M-$250M.....................................          692          3.7          4.0           98           89           73           32           16
$250M-$500M.....................................          334          4.9          5.0           99           96           88           57           40
$500M-$750M.....................................          149          5.7          6.0          100           98           96           73           53
$750M-$1B.......................................           95          6.1          7.0          100          100           97           79           64
$1B+............................................          287          7.0          7.0          100           98           96           88           77
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    In addition to the revised complexity index, the NCUA is also 
proposing to use a ratio of complex assets and liabilities to total 
assets (complexity ratio or CR) to evaluate the extent to which credit 
unions are involved in complex activities. The CR, when used in 
conjunction with the revised complexity index, takes into account the 
volume of the complex activity engaged in by complex credit unions and 
provides a more accurate measure of credit union complexity.\28\ The 
numerator of the CR would be the dollar value sum of the complex assets 
and the liabilities held by a credit union, where complex assets and 
liabilities are determined using the same complexity indicators as used 
in the RCI. The denominator of the CR would be the total assets of the 
credit union.
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    \28\ See 80 FR 66625, 66661 (Oct. 29, 2015) (As pointed out by 
at least one commenter, credit unions should not be considered 
complex unless complex activities are undertaken in significant 
volumes. The commenter provided the following example: A credit 
union that lends a member $60,000 to purchase new equipment for his 
bakery is engaged in member business lending, but that credit union 
should not be designated as complex by virtue of that single loan--
assuming it is not a significant share of the credit union's 
assets.).
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    As shown in Table 2 below, credit unions with greater than $500 
million in total assets hold complex assets and liabilities as a larger 
share of their total assets than smaller credit unions. The complexity 
ratio increases from 23 percent among credit unions with less than $500 
million in assets to 40 percent among credit unions with more than $500 
million in assets. Of the $497 billion in complex assets and 
liabilities in the credit union system, $423 billion (85 percent)--the 
majority of complex assets and liabilities in the credit union system--
are held among credit unions with more than $500 million in assets.\29\
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    \29\ Credit unions with assets between $250 million and $500 
million hold a higher share of their portfolio in complex assets (32 
percent) than the entire group of credit unions below $500 million 
in assets (23 percent), but it remains below the share of complex 
assets in credit unions above $500 million in assets (40 percent).

                                         Table 2--Complexity Ratio by Asset Categories, 2017Q4 Call Report Data
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                                                                                                                                            Cumulative
                                                                                                                             Share of        share of
                                                             Number of    Complex assets                   Complex ratio   complex A & L   complex A & L
                     Asset category                        credit unions        and        Total assests        (%)        in the credit   in the credit
                                                                            liabilities                                    union system    union system
                                                                                                                                (%)             (%)
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<$500M..................................................           5,042          74,600         330,545              23              15              15
>$500M..................................................             531         422,553       1,048,289              40              85             100
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    Table 3 below shows the share of credit unions in each asset 
category above various complex ratio thresholds. Larger credit unions 
are much more likely to have a significant share of their balance sheet 
in complex assets and liabilities. Nearly all credit unions (95 
percent) with more than $500 million in assets have complex assets and 
liabilities greater than 10 percent of their total assets, and 66 
percent have complex assets and liabilities greater than 30 percent of 
their total assets.

                 Table 3--Complexity Ratio Above Various Thresholds by Asset Categories, 2017Q4
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                                                                   Complex ratio   Complex ratio   Complex ratio
                         Asset category                                >10%            >20%            >30%
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<$500M..........................................................              29              18              11
>$500M..........................................................              95              84              66
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[[Page 39001]]

    In general, two-thirds of credit unions with more than $500 million 
in total assets have complex assets and liabilities ratios above 30 
percent. Only 11 percent of credit unions with less than $500 million 
have complexity ratios above 30 percent.\30\
    Using both the revised complexity index and the complexity ratio to 
determine the appropriate threshold for defining complex credit unions 
would exclude approximately 90 percent of credit unions from the risk-
based capital requirement, while still covering approximately 76 
percent of the assets held by federally insured credit unions.\31\ 
Moreover, the revised definition of a complex credit union would not 
represent undue risk to the NCUSIF, nor significantly decrease the 
level of complex assets and liabilities covered by the risk-based 
capital requirement. Even though the percent of total assets covered by 
the rule would fall from 93 percent \32\ to 76 percent when compared to 
the $100 million threshold adopted in the 2015 Final Rule,\33\ 85 
percent of complex assets and liabilities would still be covered.
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    \30\ Credit unions with assets between $250 million and $500 
million are more likely to have a CR greater than 10 percent (88 
percent) than the entire group of credit unions below $500 million 
in assets (29 percent), but it remains below the share of complex 
assets in credit unions above $500 million in assets (95 percent). 
Further, the difference widens significantly for CRs above 10 
percent. Less than half (47 percent) of credit unions with assets 
between $250 million and $500 million have a CR greater than 30 
percent, whereas over two-thirds of credit unions with more than 
$500 million in assets have a CR greater than 30 percent.
    \31\ Based on December 31, 2017 Call Report data.
    \32\ Based on December 31, 2017 Call Report data, 93 percent of 
credit union assets would be covered based on the $100 million 
threshold established by the 2015 Final Rule.
    \33\ Based on December 31, 2017 Call Report data.
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    In addition, if the historical trends in changes to the composition 
of the credit union community continue, the share of total assets 
covered by the rule will rise in the future, potentially reaching 90 
percent of total assets within the next 10 years. Also, the higher 
asset threshold still captures those credit unions that, if they 
failed, individually could present an undue risk of loss to the NCUSIF. 
In addition, if the historical trends in changes to the composition of 
the credit union community continue and historical probability of 
failure and loss given failure rates (excluding fraud related failures) 
for credit unions with total assets between $100 and $500 million and 
those with total assets over $500 million remain the same, total losses 
to the NCUSIF over the next 10 years would likely be significantly 
larger for credit unions with more than $500 million in assets than for 
those with assets between $100 million and $500 million.

                   Table 4--Credit Unions Bound by Risk-Based Capital, 2017Q4 Call Report Data
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                                                         Number of complex   Capital required
                                                           credit unions       over the net       Total assets
                     Asset category                        bound by risk-      worth ratio         (billion)
                                                           based capital        (million)
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Assets $100M-$500M.....................................                284               $165                $69
Assets >$500M..........................................                221                635                370
                                                        --------------------------------------------------------
    Total..............................................                505                800                439
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    Under the 2015 Final Rule, an estimated 505 credit unions would 
face higher required capital levels as a result of risk-based capital 
requirements. These 505 credit unions have total assets of $439 billion 
and the 2015 Final Rule would raise their required capital levels by 
approximately $800 million above what is required by the net worth 
ratio.\34\ Under this proposal, the 284 credit unions with assets 
between $100 and $500 million would no longer have higher required 
capital levels as a result of risk-based capital requirements. However, 
as reflected in Table 4, this proposal would maintain most of the 
credit union assets subject to higher capital requirements, and 
incremental capital required by risk-based capital, under the 2015 
Final Rule.
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    \34\ Based on December 31, 2017 Call Report data. It is 
important to note that almost all of these credit unions already 
hold enough capital to meet either the risk-based capital 
requirements or the net-worth-based capital requirements.
---------------------------------------------------------------------------

    Exempting credit unions with assets between $100 million and $500 
million represents approximately 16 percent of the total assets of 
credit unions with required capital levels above what is required by 
the net worth ratio, and about 21 percent of the incremental capital 
the system is required to hold under the 2015 Final Rule. However, this 
proposal still encompasses approximately 84 percent of the total assets 
of credit unions with required capital levels above what is required by 
the net worth ratio, and almost 80 percent of the incremental capital 
the system is required to hold under the 2015 Final Rule.
    Under the 2015 Final Rule, a net of 20 credit unions with total 
assets of $11.5 billion would have a lower PCA classification with a 
capital shortfall of $84 million.\35\ Under this proposal, 6 credit 
unions (net) with total assets of $8.8 billion would have a lower PCA 
classification and a capital deficiency of $71 million. Therefore, this 
proposal encompasses approximately 80 percent of the downgraded credit 
union assets and approximately 85 percent of the capital shortfall for 
these institutions.
---------------------------------------------------------------------------

    \35\ Based on December 31, 2017 Call Report Data.
---------------------------------------------------------------------------

    The Board also notes the NCUSIF is much stronger today than it was 
in 2015 when the agency passed the 2015 Final Rule. The equity ratio of 
the NCUSIF was 1.29 percent in 2015. In 2018, the NCUSIF equity ratio 
will be 1.39 percent even after an equity distribution of $736 million 
is paid to credit unions. The total funds held in the NCUSIF will be 
approximately $16 billion after the equity distribution this year, 
about $3.5 billion more than the $12.4 billion held in the fund in 
2015.
    The NCUA will continue to address any deficiencies in the capital 
levels of credit unions with $500 million or less in assets through the 
examination process.\36\ Sound capital levels are vital to the long-
term health of all credit unions. Credit unions need to hold capital 
commensurate with their risk. Balancing proper capital accumulation 
with product offering and pricing strategies helps ensure credit unions 
are able to provide affordable member services over time. Credit unions 
are already expected to incorporate into their business models and 
strategic plans provisions for maintaining prudent levels of capital.
---------------------------------------------------------------------------

    \36\ See, e.g., Sec.  702.102(b) (Authorizes the NCUA Board to 
reclassify a well-capitalized credit union as adequately capitalized 
and may require an adequately capitalized or undercapitalized credit 
union to comply with certain mandatory or discretionary supervisory 
actions as if it were classified in the next lower capital 
category.).

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

[[Page 39002]]

    Also, the Board wants to clarify for commenters that the standard 
under the Regulatory Flexibility Act for how the NCUA defines a ``small 
credit union'' \37\ is different from the standard under the FCUA for 
how the agency defines ``complex credit union'' for purposes of the 
risk-based net worth requirement.\38\ While both definitions currently 
use an asset threshold of greater than $100 million in total assets, 
the thresholds were arrived at using different methodologies. The 
methodologies necessarily vary to address the different applicable 
statutory provisions.\39\ This proposal addresses and amends only the 
NCUA's definition of ``complex'' credit unions as that term is defined 
under the 2015 Final Rule. It does not address or propose to amend the 
NCUA's current definition of ``small credit unions'' for purposes of 
the Regulatory Flexibility Act.\40\
---------------------------------------------------------------------------

    \37\ NCUA Interpretative Ruling and Policy Statement 15-1, 
available at https://www.ncua.gov/regulation-supervision/Pages/rules/interpretive-rulings-policy-statements.aspx.
    \38\ 80 FR 66625, 66663-66664 (October 29, 2015).
    \39\ Compare 80 FR 66663-66664, with 80 FR 57512, 57514-57516 
(Sept. 24, 2015).
    \40\ 5 U.S.C. 601 et seq.
---------------------------------------------------------------------------

V. Effective Date of the 2015 Final Rule

    The Board initially established the effective date of the 2015 
Final Rule as January 1, 2019 to provide credit unions and the NCUA 
with an extended period to make necessary adjustments to systems, 
processes, and procedures, and to reduce the burden on affected credit 
unions in meeting the new requirements. Based on feedback from the 
credit union community and agency staff, and that the agency is 
proposing to change the definition of complex credit union, the Board 
believes it is necessary and beneficial to delay the effective date of 
the 2015 Final Rule as amended by this proposal by one year. Extending 
the effective date would provide covered credit unions additional time 
to adjust systems, processes, and procedures; and would help smooth the 
transition for complex credit unions affected by the requirements of 
the 2015 Final Rule.
    Until the 2015 Final Rule's effective date, the NCUA's current PCA 
regulation will remain in effect. The NCUA will continue to enforce the 
capital standards currently in place and address any supervisory 
concerns through existing regulatory and supervisory mechanisms. The 
Board believes that, given the facts above, extending the 
implementation period of the 2015 Final Rule for an additional year 
would be reasonable and would not pose undue risk to the NCUSIF. 
Accordingly, the Board proposes to change the effective date for the 
2015 Final Rule, and any changes to that rule finalized as part of this 
rulemaking, from January 1, 2019 to January 1, 2020.

VI. Impact of the Proposed Regulation

    The proposed rule will lower the overall impact of the 2015 Final 
Rule by reducing the number of credit unions subject to the risk-based 
capital requirements of the rule. By increasing the threshold for 
defining a complex credit union from more than $100 million to more 
than $500 million in assets, an additional 1,026 credit unions would be 
exempt from the 2015 Final Rule's risk-based capital requirements. This 
represents significant burden relief for these relatively small credit 
unions, as half of them have assets of $190 million or less. The 
proposed new definition of complex credit union would exempt a total of 
90 percent (5,042) of all credit unions as of December 31, 2017.\41\ 
For comparison, if the threshold were to remain at $100 million only 
about 72 percent of all credit unions would be exempt.
---------------------------------------------------------------------------

    \41\ This proposal would limit risk-based capital requirements 
to only credit unions with assets of more than $500 million compared 
to the Other Banking Agencies' risk-based capital standards that 
apply to banks of all sizes. As of December 31, 2017, there were 
1,450 and 4,294 FDIC-insured banks with assets of $100 million and 
$500 million or less, respectively.
---------------------------------------------------------------------------

    While under this proposal 9 out of 10 credit unions would be 
exempt, these institutions only hold 24 percent of total assets in the 
credit union system and 15 percent of complex assets and 
liabilities.\42\ Thus, approximately 85 percent of the complex assets 
and liabilities and 76 percent of the total assets in the credit union 
system would still be subject to the risk based capital 
requirement.\43\
---------------------------------------------------------------------------

    \42\ Credit unions with assets between $100 million and $500 
million make up 17 percent of assets in the credit union system, and 
only hold 13 percent of complex assets and liabilities.
    \43\ For comparison, if the threshold were to remain at $100 
million about 98 percent of the complex assets and liabilities and 
93 percent of the total assets in the credit union system would 
still be subject to the risk-based capital requirement.
---------------------------------------------------------------------------

    The credit unions that would be defined as complex under this 
proposal have estimated aggregate and average risk-based capital ratios 
of 16.8 and 17.2 percent, respectively. The aggregate risk-weighted 
assets to total assets ratio is 63 percent for complex credit unions 
under this proposal.\44\ Table 5 shows the distribution of estimated 
risk-based capital ratios for all complex credit unions based on this 
proposed rule.
---------------------------------------------------------------------------

    \44\ By way of comparison, the bank aggregate total risk-
weighted assets to total assets ratio is 72.4 percent as of December 
31, 2017. Further, complex credit unions maintain a median risk-
based capital ratio of 15.8 percent compared to a bank median risk-
based capital ratio of 15.9 percent. Bank comparisons exclude banks 
with less than $50 million in total assets and more than $60 billion 
in total assets to arrive at a more comparable asset profile to 
credit unions.

                                 Table 5--Distribution of Estimated Risk Based Capital Ratios for Complex Credit Unions
--------------------------------------------------------------------------------------------------------------------------------------------------------
            RBC Ratio                    <10%            10-13%           13-16%           16-20%           20-30%           30-50%            >50%
--------------------------------------------------------------------------------------------------------------------------------------------------------
Number of CUs....................               7              110              153              144              101               14                2
--------------------------------------------------------------------------------------------------------------------------------------------------------

    As shown in Table 5 above, most complex credit unions will have a 
risk-based capital ratio well in excess of the 10 percent level 
required to be well capitalized. Under this proposal, six complex 
credit unions with total assets of $8.8 billion would have a lower 
capital classification, with a capital shortfall of approximately $71 
million.\45\ Overall, 98.7 percent of all complex credit unions are 
well capitalized under this proposed rule.
    Credit unions often hold some margin above regulatory capital 
requirements. Table 6 below provides a comparison of the margins 
complex credit unions currently hold in excess of both the net worth 
ratio requirement and the risk-based capital requirement.
---------------------------------------------------------------------------

    \45\ Of the 531 impacted credit unions, only 7, or 1.3 percent, 
would have less than the 10 percent risk-based capital requirement 
to be well capitalized. Of these, one has a net worth ratio less 
than 7 percent and is therefore not a new downgrade in capital 
classification, but already categorized as less than well 
capitalized. If the asset threshold for the definition of complex 
credit union remained at $100 million, a net of 20 credit unions 
with total assets of $11.5 billion would have a lower capital 
classification, with a capital shortfall of approximately $84 
million.

[[Page 39003]]



                   Table 6--Distribution of Net Worth Ratio and Risk-Based Capital Ratio for Complex Credit Unions Under This Proposal
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                          Greater than
                         Number of CUs                           Less than well   Well capitalized  Well capitalized  Well capitalized  well capitalized
                                                                   capitalized      to well + 2%      +2% to + 3.5%     +3.5% to + 5%         + 5%
--------------------------------------------------------------------------------------------------------------------------------------------------------
Net Worth Ratio...............................................               <7%             7%-9%          9%-10.5%         10.5%-12%              >12%
RBC Ratio.....................................................              <10%           10%-12%         12%-13.5%         13.5%-15%              >15%
Net Worth Ratio...............................................                 2                90               166               141               132
RBC Ratio.....................................................                 7                54                82                88               300
--------------------------------------------------------------------------------------------------------------------------------------------------------

    Both measures indicate the large majority of complex credit unions 
hold margins well above the levels required to be well-capitalized.
    The NCUA also analyzed complex credit unions to determine whether 
the net worth or risk-based capital requirement would require a credit 
union to hold more dollars of capital. Table 7 below summarizes the 
distribution of credit unions by the ratio of risk-weighted assets to 
total assets for credit unions bound by each capital requirement.

             Table 7--Distribution of Risk-Weighted Assets to Total Assets Ratios for Complex Credit Unions by Governing Capital Requirement
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                  Risk weighted assets/total assets
                                                     Total     Average (%) -----------------------------------------------------------------------------
                                                     number                     <50%        50-60%       60-70%       70-80%       80-90%        >90%
--------------------------------------------------------------------------------------------------------------------------------------------------------
Number Bound by Net Worth Ratio.................          310         58.9           49          101          147           10            2            1
Number Bound by Risk Based Capital..............          221         71.9            0            3           81          128            6            3
--------------------------------------------------------------------------------------------------------------------------------------------------------

    Forty-two percent of complex credit unions (221 complex credit 
unions with $370.3 billion in total assets) are estimated to have a 
higher minimum capital requirement in terms of dollars under the risk-
based capital ratio than the net worth ratio.\46\ These 221 complex 
credit unions have a notably higher risk profile than the other 310 
complex credit unions. The ratio of average risk weighted assets to 
total assets for the 221 complex credit unions is 72 percent, compared 
with 59 percent for the remaining 310 complex credit unions. Therefore, 
relative to what qualifies as capital for risk-based capital purposes, 
these institutions must hold more net worth in dollars to achieve a 
well-capitalized designation over what the net worth ratio requires.
---------------------------------------------------------------------------

    \46\ The required dollar amount for risk based capital is 
calculated as [(risk-weighted assets times 10 percent) - allowance 
for loan losses - equity acquired in merger + total adjusted 
retained earnings acquired through business combinations + NCUA 
share insurance capitalization deposit + goodwill + identifiable 
intangible assets] - (total assets x 7 percent). Complex credit 
unions in Table 7 are categorized by whichever calculation results 
in a higher dollar volume.
---------------------------------------------------------------------------

    In addition, despite holding a greater share of risk-weighted 
assets, the risk-based capital-bound group of 221 complex credit unions 
also has, on average, a net worth ratio that is 100 basis point below 
the net worth ratio of the other 310 complex credit unions.\47\ Table 7 
highlights the distribution of credit unions by risk weighted assets to 
total assets depending on whether the risk-based capital requirement 
necessitates more capital than the net worth ratio. The risk-based 
capital-bound group of 221 complex credit unions would have to retain 
more net worth in dollars than what is currently required due to the 
net worth ratio to satisfy the well-capitalized threshold. However, 
over 97 percent (215) of these institutions already hold more than 
enough capital to meet the risk-based capital requirement.
---------------------------------------------------------------------------

    \47\ The average net worth ratio is 10.3 percent for the 212 
complex credit unions bound by risk-based capital while the average 
net worth ratio for the 310 complex credit unions bound by the net 
worth ratio is 11.4 percent.
---------------------------------------------------------------------------

VI. Request for Comment

    The Board is requesting comment on all aspects of the changes 
proposed in this proposed rule. In particular, the agency requests 
comments on:
    1. Whether the definition of a complex credit union, as defined 
under Sec.  701.103 of the 2015 Final Rule, should be amended to 
increase the threshold level for coverage from more than $100 million 
in total assets to more than $500 million in total assets?
    2. Whether the implementation date for the 2015 Final Rule should 
be amended to extend the effective date of the rule until January 1, 
2020?

VII. Regulatory Procedures

Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires that, in 
connection with a notice of proposed rulemaking, an agency prepare and 
make available for public comment an initial regulatory flexibility 
analysis that describes the impact of a proposed rule on small 
entities. A regulatory flexibility analysis is not required, however, 
if the agency certifies that the rule will not have a significant 
economic impact on a substantial number of small entities (defined for 
purposes of the RFA to include credit unions with assets less than $100 
million) \48\ and publishes its certification and a short, explanatory 
statement in the Federal Register together with the rule.
---------------------------------------------------------------------------

    \48\ See 80 FR 57512 (Sept. 24, 2015).
---------------------------------------------------------------------------

    The proposed amendments to the 2015 Final Rule and part 702 would 
only affect complex credit unions, which are those with greater than 
$100 million in assets under the 2015 Final Rule and would be amended 
to cover only those with greater than $500 million in assets under this 
proposal. As a result, credit unions with $100 million or less in total 
assets would not be affected by this proposal. Accordingly, the NCUA 
certifies that this proposal will not have a significant economic 
impact on a substantial number of small credit unions.

Paperwork Reduction Act

    The Paperwork Reduction Act of 1995 (PRA) applies to rulemakings in 
which an agency by rule creates a new paperwork burden on regulated 
entities or modifies an existing burden.\49\ For purposes of the PRA, a 
paperwork burden may take the form of a reporting, disclosure, or 
recordkeeping requirement, each referred to as an

[[Page 39004]]

information collection. The NCUA 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.
---------------------------------------------------------------------------

    \49\ 44 U.S.C. 3507(d).
---------------------------------------------------------------------------

    The proposed changes to part 702 would increase the asset size of 
credit unions identified as complex from greater than $100 million to 
greater than $500 million. This change would reduce the number of 
credit unions who must comply with recordkeeping requirements 
prescribed by Sec.  702.101(b). Therefore, the burden cleared under OMB 
number 3133-0191 will be revised to reflect the reduction in the number 
of respondents.\50\
---------------------------------------------------------------------------

    \50\ Proposed revisions to OMB control number 3133-0191 have 
been submitted to OMB for approval in accordance with 5 CFR 1320.11.
---------------------------------------------------------------------------

    Title of Information Collection: Prompt Corrective Action--Risk-
Based Capital.
    OMB Control Number: 3133-0191.
    Affected Public: Private Sector: Not-for-profit institutions--
Complex Credit Unions.
    Estimated Number of Respondents: 531.
    Estimated Number of Responses per Respondent: 1.
    Estimated Hours per Response: 40.
    Estimated Total Annual Burden Hours: 21,240.
    By exempting credit unions with assets between $100 million and 
$500 million, the NCUA estimates that the burden under this proposed 
rule would be 41,040 fewer hours.
    The Board invites comment on (a) whether the collections of 
information are necessary for the proper performance of the agency's 
function, including practical utility; (b) the accuracy of estimates of 
the burden of the information collections, including the validity of 
the methodology and assumptions used; (c) ways to enhance the quality, 
utility, and clarity of the information being collected, and (d) ways 
to minimize the burden of the information collection on respondents, 
including through the use of automated collection techniques or other 
forms of information technology.
    All comments are a matter of public record. Comments regarding the 
information collection requirements of this rule should be sent to (1) 
Dawn Wolfgang, NCUA PRA Clearance Officer, National Credit Union 
Administration, 1775 Duke Street, Suite 5080, Alexandria, Virginia 
22314, or Fax No. 703-519-8572, or Email at [email protected] and 
the (2) Office of Information and Regulatory Affairs, Office of 
Management and Budget, Attention: Desk Officer for NCUA, New Executive 
Office Building, Room 10235, Washington, DC 20503, or email at 
OIRA_Submission,@OMB.EOP.gov.
    Submission of comments. The NCUA considers comments by the public 
on this proposed collection of information in:
     Evaluating whether the proposed collection of information 
is necessary for the proper performance of the functions of the NCUA, 
including whether the information will have a practical use;
     Evaluating the accuracy of the NCUA's estimate of the 
burden of the proposed collection of information, including the 
validity of the methodology and assumptions used;
     Enhancing the quality, usefulness, and clarity of the 
information to be collected; and
     Minimizing the burden of collection of information on 
those who are to respond, including through the use of appropriate 
automated, electronic, mechanical, or other technological collection 
techniques or other forms of information technology; e.g., permitting 
electronic submission of responses.

Executive Order 13132

    Executive Order 13132 encourages independent regulatory agencies to 
consider the impact of their actions on state and local interests. The 
NCUA, an independent regulatory agency as defined in 44 U.S.C. 3502(5), 
voluntarily complies with the principles of the executive order to 
adhere to fundamental federalism principles. This proposed rule reduces 
the number of federally insured natural-person credit unions, including 
federally insured, state-chartered natural-person credit unions that 
would be subject to the 2015 Final Rule. It may have, to some degree, a 
direct effect on the states, on the relationship between the national 
government and the states, or on the distribution of power and 
responsibilities among the various levels of government. It does not, 
however, rise to the level of material impact for purposed of Executive 
Order 13132.

Assessment of Federal Regulations and Policies on Families

    The NCUA has determined that this proposed rule will not affect 
family well-being within the meaning of section 654 of the Treasury and 
General Government Appropriations Act, 1999, Public Law 105-277, 112 
Stat. 2681 (1998).

List of Subjects in 12 CFR Part 702

    Credit unions, Reporting and recordkeeping requirements.


    By the National Credit Union Administration Board on August 2, 
2018.
Gerard Poliquin,
Secretary of the Board.

    For the reasons discussed above, the Board proposes to further 
amend 12 CFR part 702, as amended in a final rule at 80 FR 66625 (Oct. 
29, 2015), effective January 1, 2019, as follows:

PART 702--CAPITAL ADEQUACY

0
1. The authority citation for part 702 continues to read as follows:


    Authority:  12 U.S.C. 1766(a), 1790d.


Sec.  702.103   [Amended]

0
2. Amend Sec.  702.103 by removing the words ``one hundred million 
dollars ($100,000,000)'' and add in their place ``five hundred million 
dollars ($500,000,000).''

[FR Doc. 2018-16888 Filed 8-7-18; 8:45 am]
 BILLING CODE 7535-01-P



                                                                    Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules                                                   38997

                                               H. Unreviewed Safety Questions                          ACTION:   Proposed rule.                              weekdays between 9 a.m. and 3 p.m. To
                                                  1. The USQ process is an important tool to                                                                 make an appointment, call (703) 518–
                                               evaluate whether changes affect the safety              SUMMARY:    The NCUA Board (Board) is                 6546, or send an email to OGCMail@
                                               basis. A contractor must use the USQ process            seeking comment on a proposed rule                    ncua.gov.
                                               to ensure that the safety basis for a DOE               that would amend the NCUA’s
                                               nuclear facility is not undermined by                   previously revised regulations regarding              FOR FURTHER INFORMATION CONTACT:
                                               changes in the facility, the work performed,            prompt corrective action (PCA). The                   Policy and Analysis: Julie Cayse,
                                               the associated hazards, or other factors that           proposal would delay the effective date               Director, Division of Risk Management,
                                               support the adequacy of the safety basis.               of the NCUA’s October 29, 2015 final                  Office of Examination and Insurance, at
                                                  2. The USQ process permits a contractor to                                                                 (703) 518–6360; Kathryn Metzker, Loss/
                                               make physical and procedural changes to a
                                                                                                       rule regarding risk-based capital (2015
                                                                                                       Final Rule) for one year, moving the                  Risk Analyst, Division of Risk
                                               nuclear facility and to conduct tests and
                                               experiments without prior approval,                     effective date from January 1, 2019 to                Management, Office of Examination and
                                               provided these changes do not cause a USQ.              January 1, 2020. During the extended                  Insurance, at (703) 548–2456; Julie
                                               The USQ process provides a contractor with              delay period, the NCUA’s current PCA                  Decker, Loss/Risk Analyst, Division of
                                               the flexibility needed to conduct day-to-day            requirements would remain in effect.                  Risk Management, Office of
                                               operations by requiring only those changes              The proposal would also amend the                     Examination and Insurance, at (703)
                                               and tests with a potential to impact the safety         definition of a ‘‘complex’’ credit union              518–3684; Aaron Langley, Risk
                                               basis (and therefore the safety of the nuclear                                                                Management Officer, Division of
                                               facility) be approved by DOE. This allows
                                                                                                       adopted in the 2015 Final Rule for risk-
                                                                                                       based capital purposes by increasing the              Analytics and Surveillance, Office of
                                               DOE to focus its review on those changes
                                               significant to safety. The USQ process helps            threshold level for coverage from $100                Examination and Insurance, at (703)
                                               keep the safety basis current by ensuring               million to $500 million. These proposed               518–6387; Legal: John Brolin, Staff
                                               appropriate review of and response to                   changes would provide covered credit                  Attorney, Office of General Counsel, at
                                               situations that might adversely affect the              unions and the NCUA with additional                   (703) 518–6540; or by mail at National
                                               safety basis.                                           time to prepare for the rule’s                        Credit Union Administration, 1775
                                                  3. DOE Guide 424.1–1B Chg 2,                                                                               Duke Street, Alexandria, VA 22314.
                                               Implementation Guide for Use in Addressing
                                                                                                       implementation, and would exempt an
                                               Unreviewed Safety Question Requirements,                additional 1,026 credit unions from the               SUPPLEMENTARY INFORMATION:
                                               or successor document provides DOE’s                    rule without subjecting the National
                                                                                                                                                             I. Introduction
                                               expectations for a USQ process. The                     Credit Union Share Insurance Fund
                                               contractor must obtain DOE approval of its              (NCUSIF) to undue risk.                                  The NCUA’s primary mission is to
                                               procedure used to implement the USQ                     DATES: Comments must be received by                   ensure the safety and soundness of
                                               process. The contractor is allowed to make              September 7, 2018.                                    federally insured credit unions. The
                                               editorial and format changes to its USQ                                                                       agency performs this function by
                                               procedure while maintaining DOE approval.               ADDRESSES: You may submit written
                                                                                                       comments, identified by RIN 3133–                     examining and supervising all federal
                                               I. Functions and Responsibilities                       AE90, by any of the following methods                 credit unions, participating in the
                                                  1. The DOE Management Official for a DOE             (Please send comments by one method                   examination and supervision of
                                               nuclear facility (that is, the Assistant                only):                                                federally insured, state-chartered credit
                                               Secretary, the Assistant Administrator, or the             • Federal eRulemaking Portal: http://              unions in coordination with state
                                               Office Director who is primarily responsible
                                                                                                       www.regulations.gov. Follow the                       regulators, and insuring members’
                                               for the management of the facility) has                                                                       accounts at federally insured credit
                                               primary responsibility within DOE for                   instructions for submitting comments.
                                                                                                          • NCUA website: http://                            unions.1 In its role as administrator of
                                               ensuring that the safety basis for the facility                                                               the NCUSIF, the NCUA insures and
                                               is adequate and complies with the safety                www.ncua.gov/Legal/Regs/Pages/
                                               basis requirements of Part 830. The DOE                 PropRegs.aspx. Follow the instructions                regulates approximately 5,573 federally
                                               Management Official is responsible for                  for submitting comments.                              insured credit unions, holding total
                                               ensuring the timely and proper (1) review of               • Email: Address to regcomments@                   assets exceeding $1.4 trillion and
                                               all safety basis documents submitted to DOE             ncua.gov. Include ‘‘[Your name]—                      representing approximately 111 million
                                               and (2) preparation of a safety evaluation              Comments on Proposed Rule: Risk-                      members.2
                                               report concerning the safety basis for a                Based Capital—Supplemental Proposal’’                    At its October 2015 meeting, the
                                               facility.                                                                                                     Board issued the 2015 Final Rule to
                                                  2. DOE will maintain a public list on the
                                                                                                       in the email subject line.
                                               internet that provides the status of the safety            • Fax: (703) 518–6319. Use the                     amend Part 702 of the NCUA’s PCA
                                                                                                       subject line described above for email.               regulations to require that credit unions
                                               basis for each Hazard Category 1, 2, or 3 DOE
                                               nuclear facility and, to the extent practicable,           • Mail: Address to Gerard Poliquin,                taking certain risks hold capital
                                               provides information on how to obtain a                 Secretary of the Board, National Credit               commensurate with those risks.3 The
                                               copy of the safety basis and related                    Union Administration, 1775 Duke                       risk-based capital provisions of the 2015
                                               documents for a facility.                               Street, Alexandria, Virginia 22314–                   Final Rule apply only to federally
                                               [FR Doc. 2018–16863 Filed 8–7–18; 8:45 am]              3428.                                                 insured, natural-person credit unions
                                               BILLING CODE 6450–01–P
                                                                                                          • Hand Delivery/Courier: Same as                   with quarter-end total assets exceeding
                                                                                                       mail address.                                         $100 million. The overarching intent of
                                                                                                          You can view all public comments on                the 2015 Final Rule is to reduce the
                                                                                                       the NCUA’s website at http://                         likelihood that a relatively small
                                               NATIONAL CREDIT UNION
                                                                                                       www.ncua.gov/Legal/Regs/Pages/                        number of high-risk outlier credit
                                               ADMINISTRATION
                                                                                                       PropRegs.aspx as submitted, except for                unions would exhaust their capital and
amozie on DSK3GDR082PROD with PROPOSALS




                                               12 CFR Part 702                                         those we cannot post for technical                    cause large losses to the NCUSIF. Under
                                                                                                       reasons. The NCUA will not edit or
                                               RIN 3133–AE90                                           remove any identifying or contact                       1 As of December 31, 2017, within the nine states

                                                                                                       information from the public comments                  that allow privately insured credit unions,
                                               Risk-Based Capital—Supplemental                                                                               approximately 116 state-chartered credit unions are
                                                                                                       submitted. You may inspect paper
                                               Rule                                                                                                          privately insured and are not subject to the NCUA’s
                                                                                                       copies of comments in the NCUA’s law                  regulation and oversight.
                                               AGENCY:National Credit Union                            library at 1775 Duke Street, Alexandria,                2 Based on December 31, 2017 Call Report Data.

                                               Administration (NCUA).                                  Virginia 22314, by appointment                          3 80 FR 66625 (Oct. 29, 2015).




                                          VerDate Sep<11>2014   18:59 Aug 07, 2018   Jkt 244001   PO 00000   Frm 00016   Fmt 4702   Sfmt 4702   E:\FR\FM\08AUP1.SGM   08AUP1


                                               38998                  Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules

                                               the Federal Credit Union Act (FCUA),                      216(b)(1)(A) requires the Board to adopt                among the five net worth categories,
                                               federally insured credit unions are                       by regulation a system of PCA for                       thus subjecting it to an expanding range
                                               collectively responsible for replenishing                 federally insured credit unions                         of mandatory and discretionary
                                               losses to the NCUSIF.4                                    ‘‘consistent with’’ section 216 of the                  supervisory actions.16
                                                 The 2015 Final Rule restructures the                    FCUA and ‘‘comparable to’’ section 38                      Section 216(d)(1) of the FCUA
                                               NCUA’s PCA regulations and makes                          of the Federal Deposit Insurance Act                    requires that the NCUA’s system of PCA
                                               various revisions, including amending                     (FDI Act).8 Section 216(b)(1)(B) requires               include, in addition to the statutorily
                                               the agency’s current risk-based net                       that the Board, in designing the PCA                    defined net worth ratio requirement
                                               worth requirement by replacing the risk                   system, also take into account the                      applicable to federally insured natural-
                                               based net worth ratio with a new risk-                    ‘‘cooperative character of credit unions’’              person credit unions, ‘‘a risk-based net
                                               based capital ratio for federally insured,                (i.e., credit unions are not-for-profit                 worth 17 requirement for insured credit
                                               natural-person credit unions (credit                      cooperatives that do not issue capital                  unions that are complex, as defined by
                                               unions). The risk-based capital                           stock, must rely on retained earnings to                the Board. . . .’’ 18 The FCUA directs
                                               requirements set forth in the 2015 Final                  build net worth, and have boards of                     the NCUA to base its definition of
                                               Rule are more consistent with the                         directors that consist primarily of                     ‘‘complex’’ credit unions ‘‘on the
                                               NCUA’s risk-based capital ratio measure                   volunteers).9 The Board initially                       portfolios of assets and liabilities of
                                               for corporate credit unions and, as the                   implemented the required system of                      credit unions.’’ 19 It also requires the
                                               law requires, are more comparable to                      PCA in 2000,10 primarily in Part 702 of                 NCUA to design a risk-based net worth
                                               the regulatory risk-based capital                         the NCUA’s Regulations, and most                        requirement to apply to such ‘‘complex’’
                                               measures used by the Federal Deposit                      recently made substantial updates to the                credit unions.20
                                               Insurance Corporation (FDIC), Board of                    regulation in October 2015.11
                                               Governors of the Federal Reserve                             The purpose of section 216 of the                    III. Proposed Rule
                                               System, and Office of the Comptroller of                  FCUA is to ‘‘resolve the problems of                       Under § 702.103 of the NCUA’s 2015
                                               Currency (Other Banking Agencies). The                    [federally] insured credit unions at the                Final Rule, a credit union is defined as
                                               2015 Final Rule also eliminates several                   least possible long-term loss to the                    ‘‘complex’’ and the NCUA’s risk-based
                                               provisions in the NCUA’s current PCA                      [NCUSIF].’’ 12 To carry out that purpose,               capital ratio measure is applicable only
                                               regulations, including provisions related                 Congress set forth a basic structure for                if the credit union’s quarter-end total
                                               to the regular reserve account, risk-                     PCA in section 216 that consists of three               assets exceed $100 million, as reflected
                                               mitigation credits, and alternative risk                  principal components: (1) A framework                   in its most recent Call Report.
                                               weights.                                                  combining mandatory actions                             Consistent with the spirit and intent of
                                                 The 2015 Final Rule is currently set                    prescribed by statute with discretionary                Executive Order 13777, the NCUA
                                               to become effective on January 1, 2019.                   actions developed by the NCUA; (2) an                   further analyzed the impact of the
                                               The NCUA delayed the effective date                       alternative system of PCA to be                         NCUA’s risk-based capital requirements
                                               until January 1, 2019 to provide credit                   developed by the NCUA for credit                        and the portfolios of assets and
                                               unions and the NCUA sufficient time to                    unions defined as ‘‘new;’’ and (3) a risk-              liabilities of credit unions to identify
                                               make the necessary adjustments, such as                   based net worth requirement to apply to                 potential ways to reduce regulatory
                                               systems, processes, and procedures; to                    credit unions the NCUA defines as                       burden on credit unions.21
                                               reduce the burden on affected credit                      ‘‘complex.’’                                               Based on the NCUA’s analysis, which
                                               unions.                                                      Among other things, section 216(c) of                is discussed in more detail below, the
                                                                                                         the FCUA requires the NCUA to use a                     Board believes that $500 million in total
                                               II. Legal Authority                                       credit union’s net worth ratio to                       assets would be a more appropriate
                                                  In 1998, Congress enacted the Credit                   determine its classification among five                 threshold level for defining a complex
                                               Union Membership Access Act                               ‘‘net worth categories’’ set forth in the               credit union, and therefore subjecting it
                                               (CUMAA).5 Section 301 of CUMAA                            FCUA.13 Section 216(o) generally                        to the risk-based capital requirement.
                                               added section 216 to the FCUA,6 which                     defines a credit union’s ‘‘net worth’’ as               Increasing the threshold level to $500
                                               required the Board to adopt by                            its retained earnings balance,14 and a                  million in assets would reduce
                                               regulation a system of PCA to restore the                 credit union’s ‘‘net worth ratio,’’ as the
                                               net worth of credit unions that become                    ratio of its net worth to its total assets.15             16 12   U.S.C. 1790d(c)–(g); 12 CFR 702.204(a)–(b).
                                               inadequately capitalized.7 Section                        As a credit union’s net worth ratio                       17 For   purposes of this rulemaking, the term ‘‘risk-
                                                                                                         declines, so does its classification                    based net worth requirement’’ is used in reference
                                                  4 See 12 U.S.C. 1782(c)(2)(A) (The FCUA requires                                                               to the statutory requirement for the Board to design
                                               that each federally insured credit unions to pay a                                                                a capital standard that accounts for variations in the
                                                                                                         incorporate a change in the statutory definition of
                                               federal share insurance premium equal to a                                                                        risk profile of complex credit unions. The term
                                                                                                         ‘‘net worth,’’ 73 FR 72688 (Dec. 1, 2008); revisions
                                               percentage of the credit union’s insured shares to                                                                ‘‘risk-based capital ratio’’ is used to refer to the
                                                                                                         were made to the rule in 2011 to expand the
                                               ensure that the NCUSIF has sufficient reserves to                                                                 specific standards established in the 2015 Final
                                                                                                         definition of ‘‘low-risk assets’’ to include debt
                                               pay potential share insurance claims by credit                                                                    Rule to function as criteria for the statutory risk-
                                                                                                         instruments on which the payment of principal and
                                               union members, and to provide assistance in                                                                       based net worth requirement. The term ‘‘risk-based
                                                                                                         interest is unconditionally guaranteed by NCUA, 76
                                               connection with the liquidation or threatened                                                                     capital ratio’’ is also used by the Other Banking
                                                                                                         FR 16234 (Mar. 23, 2011); and revisions were made
                                               liquidation of federally insured credit unions in                                                                 Agencies and the international banking community
                                                                                                         in 2013 to exclude credit unions with total assets
                                               troubled condition.).                                                                                             when referring to the types of risk-based
                                                                                                         of $50 million or less from the definition of
                                                  5 Public Law 105–219, 112 Stat. 913 (1998).                                                                    requirements that are addressed in the 2015 Final
                                                                                                         ‘‘complex’’ credit union, 78 FR 4033 (Jan. 18, 2013).
                                                  6 12 U.S.C. 1790d.                                        8 12 U.S.C. 1790d(b)(1)(A); see also 12 U.S.C.
                                                                                                                                                                 Rule. This change in terminology throughout the
                                                  7 The risk-based net worth requirement for credit                                                              proposal would have no substantive effect on the
                                                                                                         1831o (Section 38 of the FDI Act setting forth the      requirements of the FCUA, and is intended only to
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                                               unions meeting the definition of ‘‘complex’’ was          PCA requirements for banks).                            reduce confusion for the reader.
                                               first applied on the basis of data in the Call Report        9 12 U.S.C. 1790d(b)(1)(B).
                                                                                                                                                                    18 12 U.S.C. 1790d(d)(1).
                                               reflecting activity in the first quarter of 2001. 65 FR      10 12 CFR part 702; see also 65 FR 8584 (Feb. 18,
                                                                                                                                                                    19 12 U.S.C. 1790d(d).
                                               44950 (July 20, 2000). The NCUA’s risk-based net          2000) and 65 FR 44950 (July 20, 2000).                     20 Id.
                                               worth requirement has been largely unchanged                 11 80 FR 66625 (Oct. 29, 2015).
                                               since its implementation, with the following                 12 12 U.S.C. 1790d(a)(1).
                                                                                                                                                                    21 The Board has always intended to periodically

                                               limited exceptions: revisions were made to the rule                                                               review the threshold of a complex credit union, as
                                                                                                            13 12 U.S.C. 1790d(c).
                                               in 2003 to amend the risk-based net worth                                                                         noted in the preamble to the 2015 proposed Risk
                                                                                                            14 12 U.S.C. 1790d(o)(2).
                                               requirement for MBLs, 68 FR 56537 (Oct. 1, 2003);                                                                 Based Capital Rule. 80 FR 4339, 4378 (January 27,
                                               revisions were made to the rule in 2008 to                   15 12 U.S.C. 1790d(o)(3).                            2015).



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                                                                     Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules                                                   38999

                                               regulatory burden on credit unions by                   complex products and services provided                    volume of the complex activity engaged
                                               more closely tailoring the applicability                by credit unions based on the following                   in by such credit unions.
                                               of the NCUA’s risk-based capital                        indicators:                                                  Following a careful review of the 2015
                                               requirement to cover only those credit                  • Member Business Loans                                   Final Rule by the NCUA’s regulatory
                                               unions that, if they failed, individually               • Participation Loans                                     reform task force,26 the Board is now
                                               could present an undue risk of loss to                  • Interest-Only Loans                                     proposing to revise the original
                                               the NCUSIF. This amendment would                        • Indirect Loans                                          complexity index (revised complexity
                                               exempt an additional 1,026 credit                       • Real Estate Loans                                       index or RCI), and to apply a new
                                               unions—a total of 90 percent 22 of all                  • Non-Federally Guaranteed Student                        complexity ratio (complexity ratio or
                                               credit unions—from the 2015 Final                          Loans                                                  CR) for analyzing the portfolios of assets
                                               Rule’s risk-based capital requirements.                 • Investments with Maturities of                          and liabilities of credit unions to
                                               However, approximately 85 percent of                       Greater than Five Years (where the                     determine which are ‘‘complex.’’ The
                                               the complex assets and liabilities and 76                  investments are greater than one                       RCI would amend 6 of the indicators in
                                               percent of the total assets in the credit                  percent of total assets)                               the original complexity index so the
                                                                                                       • Non-Agency Mortgage-Backed                              index will more accurately reflect
                                               union system would still be subject to
                                                                                                          Securities                                             ‘‘complexity’’ in credit unions and take
                                               the risk-based capital requirement.23                   • Non-Mortgage Related Securities With
                                               Accordingly, consistent with                                                                                      into account certain regulatory changes
                                                                                                          Embedded Options
                                               requirements of section 216(d)(1) of the                • Collateralized Mortgage Obligations/                    that were made after the 2015 Final Rule
                                               FCUA, proposed § 702.103 would                             Real Estate Mortgage Investment                        was approved. The revised complexity
                                               provide that, for purposes of § 702.102,                   Conduits                                               index would be the same as the original
                                               a credit union is defined as ‘‘complex,’’               • Commercial Mortgage-Related                             complexity index, with the following
                                               and a risk-based capital ratio                             Securities                                             six changes:
                                               requirement is applicable, only if the                  • Borrowings (Draws Against Lines of                         • Replace the indicator for ‘‘member
                                               credit union’s quarter-end total assets                    Credit, Borrowing Repurchase                           business loans’’ with an indicator for
                                               exceed $500 million, as reflected in its                   Transactions, Other Notes, Promissory                  ‘‘commercial loans’’ to reflect changes to
                                               most recent Call Report.                                   Notes, and Interest Payable)                           the NCUA’s member business lending
                                                  Under the 2015 Final Rule, the NCUA                  • Repurchase Transactions                                 rule,27 and current Call Report data
                                               determined that credit unions exceeding                 • Derivatives                                             collection requirements.
                                               the $100 million asset-size threshold                   • Internet Banking                                           • Replace the indicator for
                                               had portfolios of assets and liabilities                   As discussed in more detail in the                     ‘‘participation loans’’ (which included
                                               that were complex based on the                          2015 Final Rule, these products and                       participation loans sold and
                                               products and services in which such                     services were determined by the NCUA                      participation loans held) with an
                                               credit unions engaged. As explained                     to be good indicators of complexity.25                    indicator for ‘‘participation loans sold’’
                                               further below, the $100 million asset-                     To define ‘‘complex’’ credit unions for                to restrict the indicator to the most
                                               size threshold was developed as a proxy                 the 2015 Final Rule, the NCUA used the                    complex component of participation
                                               measure based on a detailed analysis                    original complexity index to analyze                      loans.
                                               performed by the NCUA. The threshold                    June 30, 2014 and March 31, 2015 Call                        • Replace the indicator for ‘‘interest-
                                               set forth a clear demarcation line, above               Report data. Based on the OCI, for credit                 only loans’’ to exclude first-lien
                                               which the NCUA determined all credit                    unions with more than $100 million in                     mortgages. The remaining interest only
                                               unions engaged in complex activities,                   assets, 100 percent engaged in offering                   loans include complex payment
                                               and where almost all such credit unions                 at least one complex activity; 99 percent                 options. For example, only requiring
                                               (99 percent) were involved in multiple                  engaged in two or more complex                            monthly payments of interest during
                                               complex activities.24 The NCUA                          activities; and 87 percent engaged in                     draw periods.
                                               continues to believe that using a single                four or more complex activities.                             • Remove the indicator for ‘‘internet
                                               asset-size threshold is appropriate, as it              Accordingly, the Board determined it                      banking’’ because it has become a
                                               is clear, logical, and easy to administer.              was appropriate to set the asset size                     typical mechanism for members to
                                               Moreover, using a single asset-size                     threshold for ‘‘complex’’ credit unions                   transact business with most credit
                                               threshold provides regulatory relief for                at $100 million in total assets,                          unions, with 78 percent of credit unions
                                               smaller institutions, and eliminates the                subjecting credit unions with more than                   engaging in some type of internet
                                               potential unintended consequences of                    $100 million in assets to the NCUA’s                      banking. Also, it is not an asset or
                                               having a checklist of activities that                   risk-based capital requirements.                          liability—therefore there is no suitable
                                               would determine complexity on an                           As discussed in more detail below,                     way to translate the volume into a
                                               institution-by-institution basis.                       the OCI did not take into account the                     financial measure for purposes of
                                                  The $100 million asset threshold                                                                               defining complex.
                                               adopted in the 2015 Final Rule for                         25 80 FR 66625, 66663 (Oct. 29, 2015). The 2015           • Remove the indicator for
                                                                                                       Final Rule states ‘‘For the purpose of defining a         ‘‘investments with maturities greater
                                               determining whether a credit union is                   complex credit union, assets include tangible and
                                               complex was based on a complexity                       intangible items that are economic resources
                                                                                                                                                                 than five years (where the investments
                                               index (original complexity index or                     (products and services) that are expected to produce      are greater than one percent of total
                                               OCI). The OCI counted the number of                     economic benefit (income), and liabilities are            assets)’’ because the indicator is
                                                                                                       obligations (expenses) the credit union has to            adequately captured in the other index
                                                                                                       outside parties. The Board recognizes there are
                                                  22 Based on December 31, 2017 Call Report data.                                                                components.
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                                                                                                       products and services—which under GAAP are
                                               For comparison, if the threshold were to remain at      reflected as the credit unions’ portfolio of assets and      • Replace the indicator for ‘‘real
                                               $100 million about 72 percent of all credit unions      liabilities—in which credit unions are engaged that       estate loans (where the loans are greater
                                               would be exempt.                                        are inherently complex based on the nature of their
                                                  23 For comparison, if the threshold were to remain
                                                                                                                                                                 than five percent of assets and/or sold
                                                                                                       risk and the expertise and operational demands
                                               at $100 million about 98 percent of the complex         necessary to manage and administer such activities
                                                                                                                                                                 mortgages)’’ with an indicator for ‘‘sold
                                               assets and liabilities and 93 percent of the total      effectively. Thus, credit unions offering such
                                               assets in the credit union system would be subject      products and services have complex portfolios of            26 See82 FR 39702, 39706 (Aug. 22, 2017).
                                               to the risk based capital requirement.                  assets and liabilities for purposes of NCUA’s risk-         27 See12 CFR 723.2; and 81 FR 13529, 13538
                                                  24 80 FR 66625, 66663 (Oct. 29, 2015).               based net worth requirement.’’                            (March 14, 2016).



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                                               39000                        Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules

                                               mortgages’’ to account for the most                                        assets and liabilities of credit unions, for                             million or more in total assets, 100
                                               complex component of real estate loans.                                    identifying when credit unions engage                                    percent engage in at least one complex
                                                 The NCUA believes the revised                                            in complex activities and defining credit                                activity, and 96 percent engage in three
                                               complexity index would provide a more                                      unions as ‘‘complex.’’ Table 1 shows                                     or more complex activities.
                                               accurate methodology, based on the                                         that, among credit unions with $500

                                                                          TABLE 1—REVISED COMPLEXITY INDEX BY ASSET CATEGORY, 2017Q4 CALL REPORT DATA
                                                                                            Number of                Average                Median               Index >=1              Index >=2        Index >=3        Index >=5          Index >=6
                                                       Asset category                         credit                  index                  index                  (%)                    (%)              (%)              (%)                (%)
                                                                                             unions                   value                  value

                                               <$100M ............................                   4,016                      0.8                    0.0                   41                   21                10                 2               1
                                               $100M–$250M .................                           692                      3.7                    4.0                   98                   89                73                32              16
                                               $250M–$500M .................                           334                      4.9                    5.0                   99                   96                88                57              40
                                               $500M–$750M .................                           149                      5.7                    6.0                  100                   98                96                73              53
                                               $750M–$1B ......................                         95                      6.1                    7.0                  100                  100                97                79              64
                                               $1B+ .................................                  287                      7.0                    7.0                  100                   98                96                88              77



                                                  In addition to the revised complexity                                   numerator of the CR would be the dollar                                  complexity ratio increases from 23
                                               index, the NCUA is also proposing to                                       value sum of the complex assets and the                                  percent among credit unions with less
                                               use a ratio of complex assets and                                          liabilities held by a credit union, where                                than $500 million in assets to 40 percent
                                               liabilities to total assets (complexity                                    complex assets and liabilities are                                       among credit unions with more than
                                               ratio or CR) to evaluate the extent to                                     determined using the same complexity                                     $500 million in assets. Of the $497
                                               which credit unions are involved in                                        indicators as used in the RCI. The                                       billion in complex assets and liabilities
                                               complex activities. The CR, when used                                      denominator of the CR would be the                                       in the credit union system, $423 billion
                                               in conjunction with the revised                                            total assets of the credit union.                                        (85 percent)—the majority of complex
                                               complexity index, takes into account the                                      As shown in Table 2 below, credit                                     assets and liabilities in the credit union
                                               volume of the complex activity engaged                                     unions with greater than $500 million in                                 system—are held among credit unions
                                               in by complex credit unions and                                            total assets hold complex assets and
                                                                                                                                                                                                   with more than $500 million in assets.29
                                               provides a more accurate measure of                                        liabilities as a larger share of their total
                                               credit union complexity.28 The                                             assets than smaller credit unions. The

                                                                                 TABLE 2—COMPLEXITY RATIO BY ASSET CATEGORIES, 2017Q4 CALL REPORT DATA
                                                                                                                                                                                                                                          Cumulative
                                                                                                                                                                                                                        Share of           share of
                                                                                                                                                Complex                                                             complex A & L
                                                                                                                    Number of                                                                    Complex ratio                         complex A & L
                                                                   Asset category                                                              assets and               Total assests                                 in the credit
                                                                                                                   credit unions                                                                    (%)                                  in the credit
                                                                                                                                                liabilities                                                          union system       union system
                                                                                                                                                                                                                           (%)                (%)

                                               <$500M ....................................................                      5,042                   74,600                  330,545                      23                 15                    15
                                               >$500M ....................................................                        531                  422,553                1,048,289                      40                 85                   100



                                                  Table 3 below shows the share of                                        balance sheet in complex assets and                                      their total assets, and 66 percent have
                                               credit unions in each asset category                                       liabilities. Nearly all credit unions (95                                complex assets and liabilities greater
                                               above various complex ratio thresholds.                                    percent) with more than $500 million in                                  than 30 percent of their total assets.
                                               Larger credit unions are much more                                         assets have complex assets and
                                               likely to have a significant share of their                                liabilities greater than 10 percent of

                                                                        TABLE 3—COMPLEXITY RATIO ABOVE VARIOUS THRESHOLDS BY ASSET CATEGORIES, 2017Q4
                                                                                                                                                                                                 Complex ratio      Complex ratio          Complex ratio
                                                                                                           Asset category                                                                           >10%               >20%                   >30%

                                               <$500M ........................................................................................................................................               29                 18                    11
                                               >$500M ........................................................................................................................................               95                 84                    66
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                                                 28 See 80 FR 66625, 66661 (Oct. 29, 2015) (As                            is engaged in member business lending, but that                          portfolio in complex assets (32 percent) than the
                                               pointed out by at least one commenter, credit                              credit union should not be designated as complex                         entire group of credit unions below $500 million in
                                               unions should not be considered complex unless                             by virtue of that single loan—assuming it is not a                       assets (23 percent), but it remains below the share
                                               complex activities are undertaken in significant                           significant share of the credit union’s assets.).                        of complex assets in credit unions above $500
                                               volumes. The commenter provided the following                                 29 Credit unions with assets between $250 million                     million in assets (40 percent).
                                               example: A credit union that lends a member                                and $500 million hold a higher share of their
                                               $60,000 to purchase new equipment for his bakery


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                                                                            Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules                                                                              39001

                                                  In general, two-thirds of credit unions                                  would not represent undue risk to the                               still captures those credit unions that, if
                                               with more than $500 million in total                                        NCUSIF, nor significantly decrease the                              they failed, individually could present
                                               assets have complex assets and                                              level of complex assets and liabilities                             an undue risk of loss to the NCUSIF. In
                                               liabilities ratios above 30 percent. Only                                   covered by the risk-based capital                                   addition, if the historical trends in
                                               11 percent of credit unions with less                                       requirement. Even though the percent of                             changes to the composition of the credit
                                               than $500 million have complexity                                           total assets covered by the rule would                              union community continue and
                                               ratios above 30 percent.30                                                  fall from 93 percent 32 to 76 percent                               historical probability of failure and loss
                                                  Using both the revised complexity                                        when compared to the $100 million                                   given failure rates (excluding fraud
                                               index and the complexity ratio to                                           threshold adopted in the 2015 Final                                 related failures) for credit unions with
                                               determine the appropriate threshold for                                     Rule,33 85 percent of complex assets and                            total assets between $100 and $500
                                               defining complex credit unions would                                        liabilities would still be covered.                                 million and those with total assets over
                                               exclude approximately 90 percent of                                            In addition, if the historical trends in                         $500 million remain the same, total
                                               credit unions from the risk-based capital                                   changes to the composition of the credit                            losses to the NCUSIF over the next 10
                                               requirement, while still covering                                           union community continue, the share of                              years would likely be significantly
                                               approximately 76 percent of the assets                                      total assets covered by the rule will rise                          larger for credit unions with more than
                                               held by federally insured credit                                            in the future, potentially reaching 90                              $500 million in assets than for those
                                               unions.31 Moreover, the revised                                             percent of total assets within the next 10                          with assets between $100 million and
                                               definition of a complex credit union                                        years. Also, the higher asset threshold                             $500 million.

                                                                            TABLE 4—CREDIT UNIONS BOUND BY RISK-BASED CAPITAL, 2017Q4 CALL REPORT DATA
                                                                                                                                                                                      Number of         Capital required
                                                                                                                                                                                    complex credit       over the net             Total assets
                                                                                                  Asset category                                                                   unions bound by        worth ratio               (billion)
                                                                                                                                                                                  risk-based capital       (million)

                                               Assets $100M–$500M ...............................................................................................                               284                   $165                     $69
                                               Assets >$500M ..........................................................................................................                         221                    635                     370

                                                     Total ....................................................................................................................                 505                    800                     439



                                                 Under the 2015 Final Rule, an                                             capital the system is required to hold                              was 1.29 percent in 2015. In 2018, the
                                               estimated 505 credit unions would face                                      under the 2015 Final Rule. However,                                 NCUSIF equity ratio will be 1.39
                                               higher required capital levels as a result                                  this proposal still encompasses                                     percent even after an equity distribution
                                               of risk-based capital requirements.                                         approximately 84 percent of the total                               of $736 million is paid to credit unions.
                                               These 505 credit unions have total                                          assets of credit unions with required                               The total funds held in the NCUSIF will
                                               assets of $439 billion and the 2015 Final                                   capital levels above what is required by                            be approximately $16 billion after the
                                               Rule would raise their required capital                                     the net worth ratio, and almost 80                                  equity distribution this year, about $3.5
                                               levels by approximately $800 million                                        percent of the incremental capital the                              billion more than the $12.4 billion held
                                               above what is required by the net worth                                     system is required to hold under the                                in the fund in 2015.
                                               ratio.34 Under this proposal, the 284                                       2015 Final Rule.
                                               credit unions with assets between $100                                                                                                             The NCUA will continue to address
                                                                                                                             Under the 2015 Final Rule, a net of 20
                                               and $500 million would no longer have                                                                                                           any deficiencies in the capital levels of
                                                                                                                           credit unions with total assets of $11.5
                                               higher required capital levels as a result                                  billion would have a lower PCA                                      credit unions with $500 million or less
                                               of risk-based capital requirements.                                         classification with a capital shortfall of                          in assets through the examination
                                               However, as reflected in Table 4, this                                      $84 million.35 Under this proposal, 6                               process.36 Sound capital levels are vital
                                               proposal would maintain most of the                                         credit unions (net) with total assets of                            to the long-term health of all credit
                                               credit union assets subject to higher                                       $8.8 billion would have a lower PCA                                 unions. Credit unions need to hold
                                               capital requirements, and incremental                                       classification and a capital deficiency of                          capital commensurate with their risk.
                                               capital required by risk-based capital,                                     $71 million. Therefore, this proposal                               Balancing proper capital accumulation
                                               under the 2015 Final Rule.                                                  encompasses approximately 80 percent                                with product offering and pricing
                                                 Exempting credit unions with assets                                       of the downgraded credit union assets                               strategies helps ensure credit unions are
                                               between $100 million and $500 million                                       and approximately 85 percent of the                                 able to provide affordable member
                                               represents approximately 16 percent of                                      capital shortfall for these institutions.                           services over time. Credit unions are
                                               the total assets of credit unions with                                        The Board also notes the NCUSIF is                                already expected to incorporate into
                                               required capital levels above what is                                       much stronger today than it was in 2015                             their business models and strategic
                                               required by the net worth ratio, and                                        when the agency passed the 2015 Final                               plans provisions for maintaining
                                               about 21 percent of the incremental                                         Rule. The equity ratio of the NCUSIF                                prudent levels of capital.
                                                 30 Credit unions with assets between $250 million                         credit unions with more than $500 million in assets                 the risk-based capital requirements or the net-
                                               and $500 million are more likely to have a CR                               have a CR greater than 30 percent.
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                                                                                                                                                                                               worth-based capital requirements.
                                               greater than 10 percent (88 percent) than the entire                           31 Based on December 31, 2017 Call Report data.                    35 Based on December 31, 2017 Call Report Data.
                                               group of credit unions below $500 million in assets                            32 Based on December 31, 2017 Call Report data,
                                                                                                                                                                                                 36 See, e.g., § 702.102(b) (Authorizes the NCUA
                                               (29 percent), but it remains below the share of                             93 percent of credit union assets would be covered
                                                                                                                                                                                               Board to reclassify a well-capitalized credit union
                                               complex assets in credit unions above $500 million                          based on the $100 million threshold established by
                                               in assets (95 percent). Further, the difference                             the 2015 Final Rule.                                                as adequately capitalized and may require an
                                               widens significantly for CRs above 10 percent. Less                            33 Based on December 31, 2017 Call Report data.                  adequately capitalized or undercapitalized credit
                                               than half (47 percent) of credit unions with assets                            34 Based on December 31, 2017 Call Report data.                  union to comply with certain mandatory or
                                               between $250 million and $500 million have a CR                             It is important to note that almost all of these credit             discretionary supervisory actions as if it were
                                               greater than 30 percent, whereas over two-thirds of                         unions already hold enough capital to meet either                   classified in the next lower capital category.).



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                                               39002                Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules

                                                  Also, the Board wants to clarify for                 necessary and beneficial to delay the                   assets, an additional 1,026 credit unions
                                               commenters that the standard under the                  effective date of the 2015 Final Rule as                would be exempt from the 2015 Final
                                               Regulatory Flexibility Act for how the                  amended by this proposal by one year.                   Rule’s risk-based capital requirements.
                                               NCUA defines a ‘‘small credit union’’ 37                Extending the effective date would                      This represents significant burden relief
                                               is different from the standard under the                provide covered credit unions                           for these relatively small credit unions,
                                               FCUA for how the agency defines                         additional time to adjust systems,                      as half of them have assets of $190
                                               ‘‘complex credit union’’ for purposes of                processes, and procedures; and would                    million or less. The proposed new
                                               the risk-based net worth requirement.38                 help smooth the transition for complex                  definition of complex credit union
                                               While both definitions currently use an                 credit unions affected by the                           would exempt a total of 90 percent
                                               asset threshold of greater than $100                    requirements of the 2015 Final Rule.                    (5,042) of all credit unions as of
                                               million in total assets, the thresholds                    Until the 2015 Final Rule’s effective                December 31, 2017.41 For comparison, if
                                               were arrived at using different                         date, the NCUA’s current PCA
                                                                                                                                                               the threshold were to remain at $100
                                               methodologies. The methodologies                        regulation will remain in effect. The
                                                                                                                                                               million only about 72 percent of all
                                               necessarily vary to address the different               NCUA will continue to enforce the
                                                                                                                                                               credit unions would be exempt.
                                               applicable statutory provisions.39 This                 capital standards currently in place and
                                               proposal addresses and amends only the                  address any supervisory concerns                           While under this proposal 9 out of 10
                                               NCUA’s definition of ‘‘complex’’ credit                 through existing regulatory and                         credit unions would be exempt, these
                                               unions as that term is defined under the                supervisory mechanisms. The Board                       institutions only hold 24 percent of total
                                               2015 Final Rule. It does not address or                 believes that, given the facts above,                   assets in the credit union system and 15
                                               propose to amend the NCUA’s current                     extending the implementation period of                  percent of complex assets and
                                               definition of ‘‘small credit unions’’ for               the 2015 Final Rule for an additional                   liabilities.42 Thus, approximately 85
                                               purposes of the Regulatory Flexibility                  year would be reasonable and would not                  percent of the complex assets and
                                               Act.40                                                  pose undue risk to the NCUSIF.                          liabilities and 76 percent of the total
                                                                                                       Accordingly, the Board proposes to                      assets in the credit union system would
                                               V. Effective Date of the 2015 Final Rule
                                                                                                       change the effective date for the 2015                  still be subject to the risk based capital
                                                  The Board initially established the                  Final Rule, and any changes to that rule                requirement.43
                                               effective date of the 2015 Final Rule as                finalized as part of this rulemaking,
                                               January 1, 2019 to provide credit unions                from January 1, 2019 to January 1, 2020.                   The credit unions that would be
                                               and the NCUA with an extended period                                                                            defined as complex under this proposal
                                               to make necessary adjustments to                        VI. Impact of the Proposed Regulation                   have estimated aggregate and average
                                               systems, processes, and procedures, and                   The proposed rule will lower the                      risk-based capital ratios of 16.8 and 17.2
                                               to reduce the burden on affected credit                 overall impact of the 2015 Final Rule by                percent, respectively. The aggregate
                                               unions in meeting the new                               reducing the number of credit unions                    risk-weighted assets to total assets ratio
                                               requirements. Based on feedback from                    subject to the risk-based capital                       is 63 percent for complex credit unions
                                               the credit union community and agency                   requirements of the rule. By increasing                 under this proposal.44 Table 5 shows the
                                               staff, and that the agency is proposing                 the threshold for defining a complex                    distribution of estimated risk-based
                                               to change the definition of complex                     credit union from more than $100                        capital ratios for all complex credit
                                               credit union, the Board believes it is                  million to more than $500 million in                    unions based on this proposed rule.
                                                             TABLE 5—DISTRIBUTION OF ESTIMATED RISK BASED CAPITAL RATIOS FOR COMPLEX CREDIT UNIONS
                                                      RBC Ratio                  <10%                10–13%              13–16%             16–20%             20–30%               30–50%               >50%

                                               Number of CUs ............            7                 110                 153                  144               101                  14                   2



                                                 As shown in Table 5 above, most                       capital classification, with a capital                  Table 6 below provides a comparison of
                                               complex credit unions will have a risk-                 shortfall of approximately $71                          the margins complex credit unions
                                               based capital ratio well in excess of the               million.45 Overall, 98.7 percent of all                 currently hold in excess of both the net
                                               10 percent level required to be well                    complex credit unions are well                          worth ratio requirement and the risk-
                                               capitalized. Under this proposal, six                   capitalized under this proposed rule.                   based capital requirement.
                                               complex credit unions with total assets                   Credit unions often hold some margin
                                               of $8.8 billion would have a lower                      above regulatory capital requirements.

                                                 37 NCUA Interpretative Ruling and Policy                 42 Credit unions with assets between $100 million    million in total assets and more than $60 billion in
                                               Statement 15–1, available at https://www.ncua.gov/      and $500 million make up 17 percent of assets in        total assets to arrive at a more comparable asset
                                               regulation-supervision/Pages/rules/interpretive-        the credit union system, and only hold 13 percent       profile to credit unions.
                                               rulings-policy-statements.aspx.                         of complex assets and liabilities.                         45 Of the 531 impacted credit unions, only 7, or
                                                 38 80 FR 66625, 66663–66664 (October 29, 2015).          43 For comparison, if the threshold were to remain
                                                                                                                                                               1.3 percent, would have less than the 10 percent
                                                 39 Compare 80 FR 66663–66664, with 80 FR              at $100 million about 98 percent of the complex         risk-based capital requirement to be well
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                                               57512, 57514-57516 (Sept. 24, 2015).                    assets and liabilities and 93 percent of the total
                                                                                                                                                               capitalized. Of these, one has a net worth ratio less
                                                 40 5 U.S.C. 601 et seq.                               assets in the credit union system would still be
                                                                                                                                                               than 7 percent and is therefore not a new
                                                 41 This proposal would limit risk-based capital       subject to the risk-based capital requirement.
                                                                                                          44 By way of comparison, the bank aggregate total    downgrade in capital classification, but already
                                               requirements to only credit unions with assets of
                                                                                                       risk-weighted assets to total assets ratio is 72.4      categorized as less than well capitalized. If the asset
                                               more than $500 million compared to the Other
                                               Banking Agencies’ risk-based capital standards that     percent as of December 31, 2017. Further, complex       threshold for the definition of complex credit union
                                               apply to banks of all sizes. As of December 31,         credit unions maintain a median risk-based capital      remained at $100 million, a net of 20 credit unions
                                               2017, there were 1,450 and 4,294 FDIC-insured           ratio of 15.8 percent compared to a bank median         with total assets of $11.5 billion would have a lower
                                               banks with assets of $100 million and $500 million      risk-based capital ratio of 15.9 percent. Bank          capital classification, with a capital shortfall of
                                               or less, respectively.                                  comparisons exclude banks with less than $50            approximately $84 million.


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                                                                          Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules                                                                39003

                                                TABLE 6—DISTRIBUTION OF NET WORTH RATIO AND RISK-BASED CAPITAL RATIO FOR COMPLEX CREDIT UNIONS UNDER
                                                                                           THIS PROPOSAL
                                                                                                                        Less than                Well                  Well                      Well              Greater than
                                                                    Number of CUs                                          well              capitalized to         capitalized               capitalized         well capitalized
                                                                                                                        capitalized           well + 2%           +2% to + 3.5%             +3.5% to + 5%              + 5%

                                               Net Worth Ratio ...............................................                   <7%                 7%–9%                9%–10.5%                10.5%–12%                  >12%
                                               RBC Ratio ........................................................               <10%               10%–12%               12%–13.5%                13.5%–15%                  >15%
                                               Net Worth Ratio ...............................................                     2                     90                    166                       141                   132
                                               RBC Ratio ........................................................                  7                     54                      82                       88                   300



                                                 Both measures indicate the large                                     The NCUA also analyzed complex                          Table 7 below summarizes the
                                               majority of complex credit unions hold                               credit unions to determine whether the                    distribution of credit unions by the ratio
                                               margins well above the levels required                               net worth or risk-based capital                           of risk-weighted assets to total assets for
                                               to be well-capitalized.                                              requirement would require a credit                        credit unions bound by each capital
                                                                                                                    union to hold more dollars of capital.                    requirement.
                                                     TABLE 7—DISTRIBUTION OF RISK-WEIGHTED ASSETS TO TOTAL ASSETS RATIOS FOR COMPLEX CREDIT UNIONS BY
                                                                                      GOVERNING CAPITAL REQUIREMENT
                                                                                                                                                                       Risk weighted assets/total assets
                                                                                                                Total         Average
                                                                                                               number           (%)           <50%            50–60%        60–70%           70–80%        80–90%         >90%

                                               Number Bound by Net Worth Ratio ..................                    310              58.9            49           101             147               10             2                1
                                               Number Bound by Risk Based Capital .............                      221              71.9             0             3              81              128             6                3



                                                  Forty-two percent of complex credit                               credit unions by risk weighted assets to                  entities. A regulatory flexibility analysis
                                               unions (221 complex credit unions with                               total assets depending on whether the                     is not required, however, if the agency
                                               $370.3 billion in total assets) are                                  risk-based capital requirement                            certifies that the rule will not have a
                                               estimated to have a higher minimum                                   necessitates more capital than the net                    significant economic impact on a
                                               capital requirement in terms of dollars                              worth ratio. The risk-based capital-                      substantial number of small entities
                                               under the risk-based capital ratio than                              bound group of 221 complex credit                         (defined for purposes of the RFA to
                                               the net worth ratio.46 These 221                                     unions would have to retain more net                      include credit unions with assets less
                                               complex credit unions have a notably                                 worth in dollars than what is currently                   than $100 million) 48 and publishes its
                                               higher risk profile than the other 310                               required due to the net worth ratio to                    certification and a short, explanatory
                                               complex credit unions. The ratio of                                  satisfy the well-capitalized threshold.                   statement in the Federal Register
                                               average risk weighted assets to total                                However, over 97 percent (215) of these                   together with the rule.
                                               assets for the 221 complex credit unions                             institutions already hold more than                          The proposed amendments to the
                                               is 72 percent, compared with 59 percent                              enough capital to meet the risk-based                     2015 Final Rule and part 702 would
                                               for the remaining 310 complex credit                                 capital requirement.                                      only affect complex credit unions,
                                               unions. Therefore, relative to what
                                                                                                                    VI. Request for Comment                                   which are those with greater than $100
                                               qualifies as capital for risk-based capital
                                                                                                                       The Board is requesting comment on                     million in assets under the 2015 Final
                                               purposes, these institutions must hold
                                                                                                                    all aspects of the changes proposed in                    Rule and would be amended to cover
                                               more net worth in dollars to achieve a
                                                                                                                    this proposed rule. In particular, the                    only those with greater than $500
                                               well-capitalized designation over what
                                                                                                                    agency requests comments on:                              million in assets under this proposal. As
                                               the net worth ratio requires.
                                                  In addition, despite holding a greater                               1. Whether the definition of a                         a result, credit unions with $100 million
                                               share of risk-weighted assets, the risk-                             complex credit union, as defined under                    or less in total assets would not be
                                               based capital-bound group of 221                                     § 701.103 of the 2015 Final Rule, should                  affected by this proposal. Accordingly,
                                               complex credit unions also has, on                                   be amended to increase the threshold                      the NCUA certifies that this proposal
                                               average, a net worth ratio that is 100                               level for coverage from more than $100                    will not have a significant economic
                                               basis point below the net worth ratio of                             million in total assets to more than $500                 impact on a substantial number of small
                                               the other 310 complex credit unions.47                               million in total assets?                                  credit unions.
                                               Table 7 highlights the distribution of                                  2. Whether the implementation date
                                                                                                                                                                              Paperwork Reduction Act
                                                                                                                    for the 2015 Final Rule should be
                                                  46 The required dollar amount for risk based                      amended to extend the effective date of                     The Paperwork Reduction Act of 1995
                                               capital is calculated as [(risk-weighted assets times                the rule until January 1, 2020?                           (PRA) applies to rulemakings in which
                                               10 percent) ¥ allowance for loan losses ¥ equity
                                               acquired in merger + total adjusted retained                         VII. Regulatory Procedures                                an agency by rule creates a new
                                               earnings acquired through business combinations +                                                                              paperwork burden on regulated entities
                                                                                                                    Regulatory Flexibility Act
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                                               NCUA share insurance capitalization deposit +                                                                                  or modifies an existing burden.49 For
                                               goodwill + identifiable intangible assets] ¥ (total
                                               assets × 7 percent). Complex credit unions in Table
                                                                                                                       The Regulatory Flexibility Act (RFA)                   purposes of the PRA, a paperwork
                                               7 are categorized by whichever calculation results                   generally requires that, in connection                    burden may take the form of a reporting,
                                               in a higher dollar volume.                                           with a notice of proposed rulemaking,                     disclosure, or recordkeeping
                                                  47 The average net worth ratio is 10.3 percent for
                                                                                                                    an agency prepare and make available                      requirement, each referred to as an
                                               the 212 complex credit unions bound by risk-based
                                               capital while the average net worth ratio for the 310
                                                                                                                    for public comment an initial regulatory
                                                                                                                                                                                48 See   80 FR 57512 (Sept. 24, 2015).
                                               complex credit unions bound by the net worth ratio                   flexibility analysis that describes the
                                                                                                                                                                                49 44   U.S.C. 3507(d).
                                               is 11.4 percent.                                                     impact of a proposed rule on small


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                                               39004                Federal Register / Vol. 83, No. 153 / Wednesday, August 8, 2018 / Proposed Rules

                                               information collection. The NCUA may                    Affairs, Office of Management and                     List of Subjects in 12 CFR Part 702
                                               not conduct or sponsor, and the                         Budget, Attention: Desk Officer for                     Credit unions, Reporting and
                                               respondent is not required to respond                   NCUA, New Executive Office Building,                  recordkeeping requirements.
                                               to, an information collection unless it                 Room 10235, Washington, DC 20503, or
                                               displays a currently valid Office of                    email at                                                By the National Credit Union
                                               Management and Budget (OMB) control                     OIRA_Submission,@OMB.EOP.gov.                         Administration Board on August 2, 2018.
                                               number.                                                   Submission of comments. The NCUA                    Gerard Poliquin,
                                                 The proposed changes to part 702                      considers comments by the public on                   Secretary of the Board.
                                               would increase the asset size of credit                 this proposed collection of information                  For the reasons discussed above, the
                                               unions identified as complex from                       in:                                                   Board proposes to further amend 12
                                               greater than $100 million to greater than                 • Evaluating whether the proposed                   CFR part 702, as amended in a final rule
                                               $500 million. This change would reduce                  collection of information is necessary                at 80 FR 66625 (Oct. 29, 2015), effective
                                               the number of credit unions who must                    for the proper performance of the                     January 1, 2019, as follows:
                                               comply with recordkeeping                               functions of the NCUA, including
                                               requirements prescribed by § 702.101(b).                whether the information will have a                   PART 702—CAPITAL ADEQUACY
                                               Therefore, the burden cleared under                     practical use;
                                               OMB number 3133–0191 will be revised                      • Evaluating the accuracy of the                    ■ 1. The authority citation for part 702
                                               to reflect the reduction in the number of               NCUA’s estimate of the burden of the                  continues to read as follows:
                                               respondents.50                                          proposed collection of information,                       Authority: 12 U.S.C. 1766(a), 1790d.
                                                 Title of Information Collection:                      including the validity of the
                                               Prompt Corrective Action—Risk-Based                     methodology and assumptions used;                     § 702.103    [Amended]
                                               Capital.                                                  • Enhancing the quality, usefulness,
                                                 OMB Control Number: 3133–0191.                                                                              ■  2. Amend § 702.103 by removing the
                                                                                                       and clarity of the information to be                  words ‘‘one hundred million dollars
                                                 Affected Public: Private Sector: Not-                 collected; and
                                               for-profit institutions—Complex Credit                                                                        ($100,000,000)’’ and add in their place
                                                                                                         • Minimizing the burden of collection               ‘‘five hundred million dollars
                                               Unions.                                                 of information on those who are to
                                                 Estimated Number of Respondents:                                                                            ($500,000,000).’’
                                                                                                       respond, including through the use of
                                               531.                                                                                                          [FR Doc. 2018–16888 Filed 8–7–18; 8:45 am]
                                                                                                       appropriate automated, electronic,
                                                 Estimated Number of Responses per                                                                           BILLING CODE 7535–01–P
                                                                                                       mechanical, or other technological
                                               Respondent: 1.
                                                                                                       collection techniques or other forms of
                                                 Estimated Hours per Response: 40.
                                                 Estimated Total Annual Burden                         information technology; e.g., permitting
                                                                                                       electronic submission of responses.                   DEPARTMENT OF TRANSPORTATION
                                               Hours: 21,240.
                                                 By exempting credit unions with                       Executive Order 13132                                 Federal Aviation Administration
                                               assets between $100 million and $500
                                                                                                         Executive Order 13132 encourages
                                               million, the NCUA estimates that the                                                                          14 CFR Part 39
                                                                                                       independent regulatory agencies to
                                               burden under this proposed rule would                                                                         [Docket No. FAA–2018–0722; Product
                                                                                                       consider the impact of their actions on
                                               be 41,040 fewer hours.                                                                                        Identifier 2017–SW–104–AD
                                                 The Board invites comment on (a)                      state and local interests. The NCUA, an
                                               whether the collections of information                  independent regulatory agency as                      RIN 2120–AA64
                                               are necessary for the proper                            defined in 44 U.S.C. 3502(5), voluntarily
                                               performance of the agency’s function,                   complies with the principles of the                   Airworthiness Directives; Bell
                                               including practical utility; (b) the                    executive order to adhere to                          Helicopter Textron Canada Limited
                                               accuracy of estimates of the burden of                  fundamental federalism principles. This               Helicopters
                                               the information collections, including                  proposed rule reduces the number of
                                                                                                       federally insured natural-person credit               AGENCY: Federal Aviation
                                               the validity of the methodology and                                                                           Administration (FAA), Department of
                                               assumptions used; (c) ways to enhance                   unions, including federally insured,
                                                                                                       state-chartered natural-person credit                 Transportation (DOT).
                                               the quality, utility, and clarity of the                                                                      ACTION: Notice of proposed rulemaking
                                               information being collected, and (d)                    unions that would be subject to the 2015
                                                                                                       Final Rule. It may have, to some degree,              (NPRM).
                                               ways to minimize the burden of the
                                               information collection on respondents,                  a direct effect on the states, on the
                                                                                                       relationship between the national                     SUMMARY:    We propose to supersede
                                               including through the use of automated                                                                        airworthiness directive (AD) 2015–22–
                                               collection techniques or other forms of                 government and the states, or on the
                                                                                                       distribution of power and                             02 for Bell Helicopter Textron Canada
                                               information technology.                                                                                       Limited (Bell) Model 429 helicopters.
                                                 All comments are a matter of public                   responsibilities among the various
                                                                                                       levels of government. It does not,                    AD 2015–22–02 requires inspecting the
                                               record. Comments regarding the                                                                                tail rotor (TR) pitch link assemblies.
                                               information collection requirements of                  however, rise to the level of material
                                                                                                       impact for purposed of Executive Order                This proposed AD would retain the
                                               this rule should be sent to (1) Dawn                                                                          inspections of AD 2015–22–02 and
                                               Wolfgang, NCUA PRA Clearance                            13132.
                                                                                                                                                             would require replacing certain pitch
                                               Officer, National Credit Union                          Assessment of Federal Regulations and                 link bearings. Since we issued AD
                                               Administration, 1775 Duke Street, Suite                 Policies on Families                                  2015–22–02, Bell has introduced a new
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                                               5080, Alexandria, Virginia 22314, or Fax                                                                      design bearing. The actions of this
                                                                                                         The NCUA has determined that this
                                               No. 703–519–8572, or Email at                                                                                 proposed AD are intended to prevent an
                                                                                                       proposed rule will not affect family
                                               PRAcomments@ncua.gov and the (2)                                                                              unsafe condition on these products.
                                                                                                       well-being within the meaning of
                                               Office of Information and Regulatory                                                                          DATES: We must receive comments on
                                                                                                       section 654 of the Treasury and General
                                                 50 Proposed revisions to OMB control number           Government Appropriations Act, 1999,                  this proposed AD by October 9, 2018.
                                               3133–0191 have been submitted to OMB for                Public Law 105–277, 112 Stat. 2681                    ADDRESSES: You may send comments by
                                               approval in accordance with 5 CFR 1320.11.              (1998).                                               any of the following methods:


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Document Created: 2018-08-08 02:06:24
Document Modified: 2018-08-08 02:06:24
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionProposed Rules
ActionProposed rule.
DatesComments must be received by September 7, 2018.
ContactPolicy and Analysis: Julie Cayse, Director, Division of Risk Management, Office of Examination and Insurance, at (703) 518-6360; Kathryn Metzker, Loss/Risk Analyst, Division of Risk Management, Office of Examination and Insurance, at (703) 548-2456; Julie Decker, Loss/Risk Analyst, Division of Risk Management, Office of Examination and Insurance, at (703) 518-3684; Aaron Langley, Risk Management Officer, Division of Analytics and Surveillance, Office of Examination and Insurance, at (703) 518-6387; Legal: John Brolin, Staff Attorney, Office of General Counsel, at (703) 518-6540; or by mail at National Credit Union Administration, 1775 Duke Street, Alexandria, VA 22314.
FR Citation83 FR 38997 
RIN Number3133-AE90
CFR AssociatedCredit Unions and Reporting and Recordkeeping Requirements

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