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Compliance Examination Handbook
IX. Retail Sales Retail Investment Sales 1
Introduction
These compliance examination procedures and guidance
apply to retail recommendations or sales of securities by, on
behalf of, or on the premises of FDIC supervised institutions.
"Retail" in this context means securities recommendations or
sales activities which are conducted separately from a bank’s
trust or fiduciary activities. 2 While these "retail" activities are
primarily conducted with consumers, they can be conducted
with commercial customers under certain circumstances. Generally, securities are financial instruments that grant an
ownership position or the right to purchase one. They are not
insured by the FDIC. Moreover, one of their most significant
features is investment risk, i.e., the risk that purchasers may
lose part or all of their invested principal. Securities include
individual stocks and bonds, mutual funds, self-directed
individual retirement accounts (IRA) that invest in securities 3,
and annuities. 4 Securities sales activities have the potential
to bolster bank earnings, increase bank competitiveness, and
provide bank customers with additional services. However,
these types of activities also have the potential to confuse
customers, expose banks to contingent liabilities, and damage
the reputation of these institutions. Therefore, examiners must
evaluate an institution’s retail securities activities with care. A
list of key terms is available under the Job Aids section of this
chapter. Supervisory Responsibility Generally, parties that recommend or sell securities must
register with the Securities and Exchange Commission
(SEC) as broker-dealers. Once registered, broker dealers are
subject to regulation by the SEC and National Association of
Securities Dealers (NASD). However, until the Gramm-Leach-
Bliley Act (GLBA) was enacted in 1999, banks were exempt
from these requirements. Once Title II of GLBA becomes
effective, banks that offer securities will have a choice. They
may either register with the SEC as broker dealers or confine
their programs to a list of activities exempt from registration.
Due to the capital requirements imposed on broker dealers
by the SEC, most banks prefer to limit their securities sales
activities to those that do not require SEC registration.
Pursuant to §201 of GLBA, a bank is exempt from registration
as a broker 5 when it sells securities as part of:
Under GLBA, federal bank regulators will eventually become
responsible for verifying that banks accurately document
compliance with exemptions from registration. The FDIC and
other banking agencies will issue the regulations necessary
to do so once the SEC defines the scope of the registration
exemptions. 6 Until then, compliance examiners are not
required to assess bank compliance with exemptions to
registration. However, banks involved in securities sales should
be made aware of the GLBA provisions that relate to this area. NOTE: It is important to understand that a bank, an affiliate
of a bank, or a third party vendor which is registered with the
SEC as a broker-dealer is subject to regulation by the SEC
and securities self regulatory organizations such as the NASD.
As a result, these examination procedures do not attempt to
evaluate compliance with SEC or NASD rules or regulations.
However, compliance examiners should confirm that registered
broker dealers employ properly licensed sales representatives. Overview of Examination Approach
During the compliance examination of a bank that offers
investment products, examiners must consider the bank’s retail
securities activities when assessing the quality of the bank’s
compliance management system (CMS). Examiners must determine whether the CMS appropriately
manages the risks involved in retail securities sales activities,
including adherence to the Interagency Statement on Retail
Sales of Nondeposit Investment Products (Interagency
Statement) 7 , FDIC Part 344 – Recordkeeping and
Confirmation Requirements for Securities Transactions 8 ,
Treasury Regulations Part 403.5(d) – Custody of Securities
Held by Financial Institutions that are Government Securities
Brokers and Dealers 9, and Treasury Regulations Part 450
– Custodial Holdings of Government Securities by Depository
Institutions 10. In doing so, examiners should consider all
documentation related to retail securities sales, including,
but not limited to, agreements with third parties, sales
activity volume and financial reports, standard disclosures
and acknowledgment forms, records which document the
qualifications of sales personnel, and proprietary product
management reports. Based on the examiner’s conclusions
about the bank’s CMS as it relates to retail investment sales, a
determination should be made about the extent of transaction
sampling and testing necessary to complete the compliance
examination. 11 At the end of the examination, examiners should document
their conclusions about the bank’s retail securities activities in
the Risk Profile and Scoping Memorandum, examination work
papers, and Report of Examination, as appropriate. Banks
that fail to comply with applicable laws and regulations, or fail
to establish and observe appropriate policies and procedures
consistent with the Interagency Statement in connection with
retail securities sales activities, should be subject to criticism
in the Report of Examination and appropriate corrective
action. Policy and Regulatory Requirements
The Interagency Statement on Retail Sales of Nondeposit
Investment Products
FDIC Part 344, Recordkeeping and Confirmation
Requirements for Securities Transactions
Treasury Regulations Part 403.5(d), Custody of Securities
Held by Financial Institutions that are Government
Securities Brokers and Dealers
Treasury Regulations Part 450, Custodial Holdings of
Government Securities by Depository Institutions
Definitions "Annuities" are contracts that guarantee income (typically
for an individual’s lifetime) in exchange for a lump sum
or periodic payment. The terms are usually based upon
the individual’s expected lifetime and anticipated market
conditions. A variable annuity guarantees payments, but does
not guarantee the payment amounts. Variable annuities are
securities, contain investment risk, and investors select level of
investment risk. "Bank Securities Representatives" are bank employees
who solicit, recommend, and effect investment transactions
for retail customers within an insured depository institution’s
direct investment sales program. Dual and third-party
employees are not bank securities representatives.
"Brokers" charge a fee or commission for executing
customer transactions, or for providing services (for example,
investment advice). "Brokers" charge a fee or commission for executing
customer transactions, or for providing services (for example,
investment advice). "Discount Brokers" simply execute transactions and maintain
customer accounts in exchange for fees or commissions, but
do not provide investment advice. All discount brokerage
transactions are unsolicited. "Dual Employees" are employed by both the bank and a
third-party. "Full-service Brokers" provide complete investment
services, including investment advice, in exchange for fees or
commissions. "Hybrid Accounts" which include sweep accounts, combine
elements of insured deposits and investments. "Investments" are transactions in which money is contributed
for the purpose of obtaining income or profit, but which
carries the risk of loss of all or part of the principal contributed
and income accumulated. "Investment Advisers" include any individual who offers
investment advice in exchange for compensation.
"Networking Arrangements" are agreements between
banks and third-party vendors that enable vendors to sell or
recommend investments to bank customers on bank premises
or through customer referrals. "Networking Arrangements" are agreements between
banks and third-party vendors that enable vendors to sell or
recommend investments to bank customers on bank premises
or through customer referrals. "Proprietary Products" are products that the bank or bank
affiliate markets principally to bank or affiliate customers.
"Repurchase Agreements" are contracts to sell and
subsequently repurchase securities at a specified date and
price. "Repurchase Agreements" are contracts to sell and
subsequently repurchase securities at a specified date and
price. "Sales Representatives" recommend or sell investments
on bank premises or through customer referrals, and may
be NASD licensed and registered representatives or, where
the bank sells securities directly to customers pursuant to an
exception from registration, sales representatives may be Bank
Securities Representatives. "Sweep Accounts" include any accounts that employ
prearranged, automatic funds transfers (above a preset dollar
balance) from a deposit account to purchase securities. Sweep
accounts also include accounts that use prearranged, automatic
securities sales or redemptions to replenish a deposit account
that falls below a preset dollar balance. "Unsolicited Transactions" occur when customers direct
sales representatives to initiate transactions that were not
recommended or suggested by any individual connected with
the investment sales operation. Examination Procedures
Examiners should complete as many of the following
examination procedures as necessary to effectively assess
the quality of the bank’s CMS in this area and the bank’s
adherence to the Interagency Statement and the regulations
described above. Where risks are properly managed by the
bank and transaction testing is not considered necessary
to support the examiner’s conclusions, the review may be
concluded after the core analysis of the CMS. However,
if transaction testing is necessary, then examiners should
continue the examination using the Expanded Analysis in the
subsequent section of this chapter. Compliance Management System Review
Pre-Examination Planning
Examiners should follow the general compliance examination
procedures pertaining to pre-examination planning, found in
the compliance examination procedures manual, to gather as
much information as possible about a bank’s retail securities
sales activities. Discussions with bank management during
the pre-examination planning phase of the examination, along
with the Compliance Information and Document Request
should be used by the examiner to gather enough current
information from the bank to ascertain the following about the
bank:
Banks should conduct independent compliance reviews of
the retail securities program to ensure that it complies with
all laws, regulations, Interagency Statement, and internal
policies and procedures. An independent review report may be
prepared separately from an audit report. As such, examiners
should request a copy of the independent review report during
the pre-examination planning phase of the examination, and
use it as appropriate in developing the risk profile of the bank. GLBA requires bank regulators to rely, to the fullest extent
possible, on securities regulators for supervisory information
concerning securities affiliates of state non-member banks.
Reports and investor complaint data from other regulators can
be an important source of information about a third party’s
securities sales activities and a bank’s proprietary product
activities. Therefore, relevant information should be requested
from the SEC, NASD, or state as soon as reasonably possible
to ensure that it is available for the Review and Analysis
portion of the examination.15 Review and Analysis
After reviewing the information gathered during the preexamination
planning phase of the examination, the examiner
should determine which, if any, of the above policy and
regulations may apply to the bank (Job Aid available at the
end of these procedures). Examiners should use the guidance below to evaluate the
bank’s CMS (i.e., board and senior management oversight,
compliance program, and audit function) as it pertains to retail
securities activities to determine whether risks are adequately
managed. After completing the review of the bank’s CMS,
examiners should document their conclusions about the
retail securities program area through written responses to
the Decision Factors described on page IX–1.7. The written
response should be retained in the examination workpapers. Board and Senior Management Oversight Evaluation
Determine that the bank’s board of directors has adopted a
written retail securities sales policy statement that contains
the elements required in the Interagency Statement. The
policy statement, in detail commensurate with the level and
complexity of the securities sales program, should:
For retail securities activities conducted through a
networking arrangement with a third-party vendor, also
verify that:
For proprietary products offered by the bank, also:
Compliance Program Evaluation
Policies, Procedures and Internal Controls
Determine that the retail securities sales program’s policies
and procedures include a description of the following elements
contained in the Interagency Statement:
Review the policies, procedures and practices of the bank in
the following areas to: Sales Setting
Determine that the area in which security products are sold is
physically distinct from the area in which retail deposits are
taken.
Referrals
Verify that employees who are not authorized and qualified to
sell securities only make referrals, and do not make investment
recommendations, qualify customers, or take orders for
investment products. (This includes reviewing a bank’s policy,
procedures, and any prepared scripts on referring deposit
customers, or customers whose certificates of deposit are
maturing.)
Suitability
Determine that in recommending to customers the purchase,
sale, or exchange of any security, sales representatives gather
appropriate and sufficient information from the customers and
conduct a suitability analysis (sales representatives should
have reasonable grounds for believing that a recommendation
is suitable for a customer upon the basis of the information
disclosed by the customer). Sales representatives should make
reasonable efforts to obtain the following types of information:
Determine that sales representatives clearly explain all
investment recommendations to customers and provide
complete information to customers regarding investment
risks. Verify that the sales representatives document the
suitability analysis of their investment recommendations to
customers. Compensation
Determine that compensation to bank employees for
customer referrals is a one-time nominal fee of a fixed
dollar amount for each referral, and that the compensation
is paid regardless of whether the referral results in a
transaction. Determine that incentive compensation for bank employees
authorized to sell securities products is not structured in
such a way as to result in unsuitable recommendations or
sales being made to customers. Sales Practices
If the bank conducts the securities transactions, determine
that the bank:
Verify that specific individuals are designated to exercise
supervisory responsibility for each of the bank’s securities
activities. Verify that there is a separation of duties among securities
sales, management, compliance, and accounting personnel.
Determine that bank personnel who make investment
recommendations or obtain investment information as part of
their duties report their own non-exempt securities transactions
to the bank each quarter. For banks that transact retail hold-in-custody repurchase
agreements involving government securities, also:
For banks that hold government securities as a custodian
or in safekeeping for the account of a customer16, also:
Disclosures, Notices, Confirmations, and Advertisements
Determine that standard disclosures, oral and written, and
confirmation notices contain the required content, and are
provided to customers at the appropriate time in the proper
format. In particular, verify that disclosures contain at least
the following minimum required content:
Verify that the bank obtains the required customer
acknowledgements of receipt of disclosures at the time the
customer opens an account to purchase investment products. Verify that the names of the security products being sold are
not identical to the name of the bank. Determine that advertisements or promotional material about
retail securities are issued in accordance with the Interagency
Statement, and in particular:
Verify that the bank discloses, where applicable, the existence
of any material relationships with an affiliate or an investment
advisor as identified in the Interagency Statement. Determine that when the bank represents that investment
products are covered by insurance provided by any other entity
than the FDIC, the bank also provides a clear and accurate
explanation of this coverage. For proprietary products offered by the bank, also
determine that sales representatives provide customers with
disclosures that clearly inform customers of:
For banks that transact retail hold-in-custody repurchase
agreements involving government securities, also:
For banks that hold government securities as a custodian
or in safekeeping for the account of a customer, also:
Personnel Qualifications
Determine that the bank investigates the backgrounds of
employees and third party vendors it hires for its retail
securities sales program, including confirming that applicants
remain in good professional standing and are not subject
to disciplinary or enforcement action by any securities self
regulatory agency, the SEC, or any state or federal bank
regulatory agency. Determine that security sales employees and management
are qualified (appropriate licensing, registration, training, and
experience) to conduct their authorized duties:
Assess the bank's securities sales training materials to
determine that bank staff is trained on the requirements for
referral and sales activities, including any appropriate and
inappropriate customer referral activities. Monitoring
Determine that the bank conducts independent compliance
reviews (independent of security product sales and
management review staff and their monitoring activities) of its
retail securities sales program and that of any third party. Verify that the findings of the independent reviews are
periodically reported directly to the bank’s board of directors,
or committee of the board. Determine that the bank reviews customer complaints
to identify compliance issues, in particular, patterns
of inadequate disclosure and/or unsuitable securities
recommendations and sales. For banks that hold government securities as a custodian
or in safekeeping for the account of a customer, also:
Recordkeeping
If the bank conducts the securities transaction, determine that
securities sales records containing all required information are
properly maintained by the bank. For banks that hold government securities as a custodian
or in safekeeping for the account of a customer:
Audit Function Evaluation
Determine that the bank’s audit program includes its retail
securities sales program, including third party activities, and
assess the audit program’s effectiveness. Decision Factors
After completing the assessment of the compliance
management system, examiners should document their
conclusions as to whether risks in the securities sales program
area are adequately managed by the institution, as well as their
responses to each of the following Decision Factors:
Based on the examiner’s conclusions and responses to the
above questions, examiners should determine the extent of
transaction testing necessary to complete the compliance
examination. If transaction testing is deemed appropriate,
examiners should pull a sample of accounts and/or files and
use the Expanded Analysis procedures and Job Aids below. Expanded Analysis
The examination procedures in this section should be used
when examiners identify material weaknesses in the bank’s
compliance management system that require further review
to complete their assessment and to determine the bank’s
compliance with applicable laws, regulations, and the
Interagency Statement. The entire set of expanded procedures
should not be applied automatically. Examiners should
implement only those expanded procedures that address
specific areas of significant risk, weakness, or supervisory
concern. Disclosures, Notices, Confirmations, and Advertisements
Sample customer account files to review disclosures and
written acknowledgments, including those incorporated
into credit applications; investment sales confirmations; and
investment account statements. Review all advertising and promotional materials, including
the text of prepared scripts (telemarketing and platform). Personnel Qualifications
Sample sales representative personnel files to determine that
they have the appropriate licenses and training, and to review
their regulatory histories. Sales Setting
Determine that the retail securities sales setting is physically
distinct from the retail deposit area (visit additional sales
locations when practical). In those instances where there is limited space in the bank,
determine that signage and other techniques are used to clearly
distinguish the retail securities sales setting from the retail
deposit area to avoid the potential for customer confusion. Suitability
Sample customer account files to determine that retail
securities sales staff obtain and evaluate information detailing
each customer’s investment goals, financial condition, and
other factors before offering investment recommendations. Sample customer account files to determine that:
Analyze management and sales reports and promotions to:
For unsolicited investment transactions (customers direct
investment sales representatives to initiate transactions
that were not recommended or suggested by any individual
connected with the securities sales program) and discount
brokerage operations (executes transactions directed by
customer and maintains customer accounts, but does not
provide investment advice):
Compensation
Review management reports, sales reports, and a sample of
employee securities sales compensation records to:
Monitoring
Determine that the independent compliance review report
findings are presented to the bank’s board of directors. Sample customer account files and evaluate the effectiveness
of the bank’s independent compliance review at identifying
and eliminating documentation deficiencies. Determine that the independent compliance review tracks all
customer complaints. Sales Practices
Review sales records to ensure that only specifically
designated, authorized, and qualified personnel sell
investments. Custodial Holdings of Government Securities
For hold-in-custody repurchase agreements involving
government securities:
For custodial or safekeeping of government securities:
Proprietary Products
Sample customer account files and verify that proper
disclosures are included. NOTE: Where information is discovered which raises concern
that a bank’s sale of proprietary products raises safety and
soundness concerns, such as risk to liquidity or capital
adequacy, compliance examiners should promptly refer the
information to the appropriate DSC Regional Office staff. IRA and KEOGH Accounts
Where the bank offers self-directed IRA or Keogh accounts,
the Interagency Statement generally applies, 17 except with
respect to the suitability guidelines. 18 In addition, the
following management and internal controls apply. Examiners
should verify that:
Documenting the Examination
Findings should be documented in the workpapers and
incorporated in the report of examination as appropriate. In
addition, record the information about the review and analysis
of retail investment sales activities in SOURCE under the
tabbed section labeled "NDP Sales." When a bank does not adhere to the Interagency Statement,
these findings must be recorded in SOURCE under the "NDP
Sales" tab, "7: Inv Findings" sub-tab. Examiners should also
ensure that a violation code for each violation of FDIC Part
344 or the Treasury Regulations 403.5(d) and 450 is recorded
in the system. References
Statutes
Gramm-Leach-Bliley Act Title II – Functional Regulation 15 USC 78c http://fdic01.prod.fdic.gov/division/dsc/cra/glba/ Government Securities Act of 1986 Title I, Subchapter A – Regulations Under Section 15C of the Securities Exchange Act of 1934 Title II, Subchapter B – Regulations Under Title II of the Government Securities Act of 1986 15 USC 78o-5(b)(1)(A), (b)(2), (b)(3)(B) 31 USC 3121, 911; FDIC Regulation
FDIC Part 344 – Recordkeeping and Confirmation Requirements for Securities Transactions 12 CFR 344 http://www.fdic.gov/regulations/laws/rules/2000-6400.html . Treasury Regulations
Treasury Regulations Part 403.5(d) – Protection of Customer Securities and Balances; Custody of Securities Held by Financial Institutions that are Government Securities Brokers and Dealers 17 CFR 403.5(d) http://www.fdic.gov/regulations/laws/rules/8000-900.html#8000dot403.5 Treasury Regulations Part 450 – Custodial Holdings of Government Securities by Depository Institutions 17 CFR 450 http://www.fdic.gov/regulations/laws/rules/8000-1000.html#8000dot450 Department of Treasury Staff Interpretations of Government Securities Regulations http://www.publicdebt.treas.gov/gsr/gsrsecrg.htm#interpretations http://www.fdic.gov/regulations/laws/rules/8000-1100.html . Interagency Policy
Interagency Policy The Interagency Statement on Retail Sales of Nondeposit Investment Products, February 15, 1994; and the Joint Interpretations of the Interagency Statement on Retail Sales of Nondeposit Investment Products http://www.fdic.gov/regulations/laws/rules/5000-4500.html Financial Institution Letters
FIL 38-2002: Credit Risks Arising From Bank Investment Securities and Custodial Accounts Held at Securities Broker- Dealers http://www.fdic.gov/news/news/financial/2002/fil0238.html FIL 80-98: Nondeposit Investment Products and Recordkeeping Requirements Questions and Answers http://www.fdic.gov/news/news/financial/1998/fil9880.html FIL 22-98: FDIC Adopts FFIEC’s Modified Policy Statement on Repurchase Agreements http://www.fdic.gov/news/news/financial/1998/fil9822.html FIL 107-96: Rescission of the FDIC Statement of Policy on Retail Repurchase Agreements http://www.fdic.gov/news/news/inactivefinancial/1996/fil96107.html FIL 66-95: Overnight Hold-In-Custody Repurchase Transactions http://www.fdic.gov/news/news/financial/1995/fil9566.html FIL 9-94: Interagency Statement on the Retail Sales of Nondeposit Investment Products Regional Director Memoranda
DCA RD Memo 01-005: Insurance and Nondeposit Investment Products: Transfer of Supervisory Responsibilites from DOS to DCA Provides additional guidance about information sharing with NASD, including a copy of the agreement between the banking agencies and the NASD. http://fdic01/division/dsc/memos/memos/direct/64009601.pdf FDIC Legal Advisory Opinions
Advisory Opinion 83-21: Insured Nonmember Bank May Participate in Investment Services Program Without Violating the Glass-Steagall Act http://www.fdic.gov/regulations/laws/rules/4000-300.html Advisory Opinion 86-34: Plan to Make Mutual Funds Available to Bank’s Customers Advisory Opinion 86-36: Sale of Securities and Mutual Funds on Bank Premises Advisory Opinion 87-13: Brokerage Services on Premises of State-Chartered Banks Advisory Opinion 88-42: Disclosure Requirements for Bank Securities Activities Advisory Opinion 88-43: Unrelated Third Party Non-Banking Activities on Insured Nonmember Bank Premises Advisory Opinion 89-2: Insured Nonmember Bank Participation in Investment Securities Program Advisory Opinion 92-48: Insured Nonmember Bank May Participate in Brokerage Networking Program Without Violating Glass-Steagall Act Advisory Opinion 92-55: Applicability of 12 CFR Part 344 to Brokerage Networking Program Advisory Opinion 92-57: Explanation of 12 CFR Part 344 (Recordkeeping and Confirmation Requirements for Securities Transactions) Advisory Opinion 92-74: Whether Bank May Act as Agent for Sale of Fixed Rate Annuities and Permit Sale of Mutual Funds on Its Premises Through "Dual Employees" and Registered Broker-Dealer, October 29, 1992 Advisory Opinion 94-30: Application of §344.4(a)(2) Which Establishes Recordkeeping and Confirmation Requirements for Securities Transactions Advisory Opinion 94-33: Guidance Concerning the Retail Sale of Mutual Funds and Other Non-Deposit Investment Products Through a Securities Brokerage Service Advisory Opinion 94-53: Application of Section 344.4: Sale of Securities Through Banks Advisory Opinion 95-18: Custodial Holdings of Government Securities Held for Customers by Depository Banks Advisory Opinion 95-37: Whether Post-Trade Confirmation and Matching Messages Transmitted Through an Electronic Trade Confirmation System Meet the Requirements of FDIC Part 344 Advisory Opinion 96-1: Interpretation of the Department of Treasury Regulations Implementing the Government Securities Act Advisory Opinion 00-2: Would Certain Sweep Accounts Violate the Federal Deposit Insurance Act
Comments:
Comments:
Comments: Retail Insurance Sales 19 Introduction
The following supervisory information and examination
procedures apply to retail sales, solicitation, advertising, or
offers of any insurance product or annuity 20 to a consumer 21 by
a bank or any person engaged in such activities at an office
of the bank or on behalf of the bank. These materials do not
apply to sales of insurance or annuities that occur as part of a
bank’s trust or fiduciary activities. Insurance products are not FDIC-insured and may involve
investment risk. Consequently, examiners must assess the
quality of an institution’s compliance management system
(CMS) as it pertains to the retail sale of insurance and
annuities. Examiners must consider whether the CMS
appropriately manages the risks involved in these activities,
including whether the CMS produces compliance with Part
343 of the FDIC’s regulations (Consumer Protection in
Sales of Insurance) and adherence to the Interagency Policy
Statement on Retail Sales of Nondeposit Investment Products
(the Interagency Policy Statement) 22 when variable annuities
are sold. Regulatory and Policy Requirements
The primary risks addressed by Part 343 and the Interagency
Policy Statement are that consumers will:
FDIC Part 343
Pursuant to the Gramm-Leach-Bliley Act (GLBA), the federal
banking agencies have adopted regulations concerning
consumer protection in the sale of insurance by banks and
thrifts. The regulations, which include the FDIC’s Part 343,
address matters that are the responsibility of the banking
agencies to oversee and not the responsibility of state
insurance departments. 23 Part 343 applies to the bank as well as other parties that offer
insurance or annuities on bank premises or on the bank’s
behalf. Under Part 343, a party offers these products on behalf
of the bank when:
Interagency Policy Statement
The Interagency Policy Statement contains requirements
that overlap with Part 343, particularly with respect to
disclosures and the circumstances under which sales and
recommendations may be made. To the extent that Part 343
addresses an area, it governs. However, because variable
annuities have an investment component, banks that offer them
must also adhere to the program requirements explained in the
Interagency Policy Statement. In particular, a bank that offers
annuities should establish policies and procedures for its sales
program and offer variable annuities only when suitable for
customers. A detailed explanation of the requirements of the
Interagency Policy Statement is contained in the Investment
Sales Procedures. Examination Procedures
During the compliance examination of a bank that offers
insurance products, examiners must consider these activities
when assessing the quality of the bank’s compliance
management system (CMS). The specific guidance and
procedures contained in this chapter should be used within the
framework of the general compliance examination procedures
and, specifically, during the pre-examination planning and
review and analysis stages of the compliance examination. Examiners must determine whether the CMS appropriately
manages the risks involved in retail insurance sales activities,
including adherence to FDIC Part 343, and the Interagency
Policy Statement if variable annuities are sold. In doing so,
examiners should consider all documentation related to retail
insurance sales, including, but not limited to, agreements
with third parties, sales activity volume and financial reports,
standard disclosures and acknowledgment forms, records
which document the qualifications of sales personnel, and
proprietary product management reports. Based on the examiner’s conclusions about the bank’s CMS, a
determination should be made about the extent of transaction
testing or file review necessary to complete the compliance
examination. The severity of the CMS weaknesses and
operational risk should dictate the intensity of transaction
testing. The expanded analysis should be carefully tailored to
weaknesses identified in the CMS as it relates to specific retail
insurance sales activities, focusing on those areas of the bank’s
program that present the greatest degree of risk to the bank or
to consumers. At the conclusion of the examination, examiners should
document their conclusions about the bank’s retail insurance
sales activities in the Risk Profile and Scoping Memorandum,
examination work papers, and Report of Examination, as
appropriate. Banks that fail to comply with applicable laws
and regulations, or fail to establish and observe appropriate
policies and procedures consistent with Part 343 or with
the Interagency Policy Statement when applicable, should
be subject to criticism in the Report of Examination and
appropriate corrective action. Pre-examination Planning
During the initial contact with the institution and through the
Compliance Information and Document Request (CIDR):
In addition, state insurance officials should be contacted to
obtain copies of any complaint records involving the bank.
Information sharing agreements are in place with most states,
and a list of contacts is posted on the DSC website: 24http://
fdic01/division/dsc/compliance/SalesInsurance.html Review and Analysis
Examiners should use the guidance below to evaluate the
bank’s CMS as it pertains to retail insurance sales activities
to determine whether risks are adequately managed. After
completing the review of the bank’s CMS, examiners should
document their conclusions about the retail insurance sales
program area through written responses to the Decision
Factors described on page IX-2.3. The written response
should be retained in the examination workpapers. A Job
See DSC RD Memo 01-005: Insurance and Nondeposit Investment
Products: Transfer of Supervisory Responsibilities from DOS to DCA.
Aid is provided at the end of these procedures which may be
helpful in conducting the review. Board and Senior Management Oversight Evaluation
Consider whether the bank’s board of directors has adopted
written policies and procedures for the bank’s insurance
sales program. If not, are they needed? Are the policies and
procedures reviewed and updated as necessary? Does the board of directors and senior management receive
and review sufficient information to provide appropriate
direction and control of insurance sales? For retail insurance sales conducted through a networking
arrangement with a third-party vendor, also consider whether:
Compliance Program Evaluation
Policies, Procedures and Internal Controls
Consider whether the retail insurance sales program’s
policies and procedures include a description of the following
elements:
Review the policies and procedures, and through interviews
and observation consider the practices of the bank in the
following areas: Sales Setting Is the area in which insurance is sold physically distinct from
the area in which retail deposits are taken?
Referrals Employees who are not authorized and qualified to sell
insurance only make referrals, and do not make insurance
recommendations or take orders for insurance products. (This
includes reviewing any prepared scripts on referring deposit
customers, or customers whose certificates of deposit are
maturing.)
Compensation Compensation to bank employees for customer referrals is
a one-time nominal fee of a fixed dollar amount for each
referral, and that the compensation is paid regardless of
whether the referral results in a transaction. Sales Practices Insurance sales practices, including advertising, would not
lead consumers to believe that:
The bank prohibits insurance sales practices that discriminate
against victims of domestic violence or providers of services
to such victims. Disclosures, Advertisements, and Acknowledgements
Standard disclosures and advertising contain at least the
following minimum content required by Part 343:
Where insurance is offered in connection with a credit
application, standard disclosures explain that credit cannot be
conditioned on the purchase of insurance from the bank or the
consumer’s agreement not to purchase insurance elsewhere. Disclosures are provided consistently with the manner and
timing requirements of Part 343. Disclosures are understandable and meaningful, as required by
Part 343. The bank obtains the customer acknowledgement of receipt of
disclosures as required by Part 343. Personnel Qualifications
Insurance sales employees and management are qualified
(appropriate licensing, training, and/or experience) to conduct
their authorized duties. The bank's insurance sales training materials appropriately
cover the requirements for referral and sales activities,
including any appropriate and inappropriate customer referral
activities. Monitoring
Does the bank conduct monitoring of its retail insurance sales
program and that of any third party? Does the monitoring
include sales practices, the referral process, the manner and
timing of disclosures, and customer acknowledgement of
receiving disclosures? Does the bank review customer complaints to identify
compliance issues? Audit Function Evaluation
Consider whether the bank’s audit program includes its retail
insurance sales program, including third party activities, and
assess the audit program’s effectiveness. Decision Factors
After completing the assessment of the compliance
management system, examiners should document their
conclusions as to whether risks in the retail insurance sales
program area are adequately managed by the institution, as
well as their responses to each of the following Decision
Factors:
Based on the conclusions and responses to the above
questions, examiners should determine the extent of
transaction testing or file review necessary to complete
the compliance examination. If such review is deemed
appropriate, examiners should pull a sample of accounts
and/or files and use the Expanded Analysis procedures below. Expanded Analysis
The examination procedures in this section should be used
when examiners identify material weaknesses in the bank’s
compliance management system that require further review
to complete their assessment and to determine the bank’s
compliance with part 343. The entire set of expanded
procedures should not be applied automatically. Examiners
should use only those expanded procedures that address
specific areas of significant risk, weakness, or supervisory
concern. Disclosures, Notices, Acknowledgements, and
Advertisements
Sample customer account files to review disclosures and
written acknowledgments, including those incorporated into
credit applications. Review all advertising and promotional materials, including
the text of prepared scripts (telemarketing and platform). Personnel Qualifications
Sample sales representative personnel files to determine
whether they have the appropriate licenses and training, and to
review their regulatory histories. Sales Setting
Determine that the retail insurance sales setting is physically
distinct from the retail deposit area (visit additional sales
locations when practical). In those instances where there is limited space in the bank,
determine that signage and other techniques are used to clearly
distinguish the retail insurance sales setting from the retail
deposit area to avoid the potential for customer confusion. Compensation
Review management reports, sales reports, and a sample of
employee insurance sales compensation records to verify that
customer referral fees are paid as a one-time nominal fee of
a fixed dollar amount for each referral, and that the referral
fee is paid regardless of whether the referral results in a
transaction. Monitoring
Sample customer account files and evaluate the effectiveness
of the bank’s monitoring at identifying and eliminating
documentation deficiencies. Review customer complaints and consider whether the bank
addressed them adequately and used them to detect potential
compliance breakdowns. Sales Practices
Review sales records to ensure that only licensed personnel
sell insurance. Documenting Examination Findings.
Findings should be documented in the workpapers and
incorporated in the report of examination as appropriate. In
addition, record the information about the review and analysis
of bank insurance sales in SOURCE under the tabbed section
labeled "NDP Sales." References
12 CFR 343: Consumer Protection in Sales of Insurance http://www.fdic.gov/regulations/laws/rules/2000-6300.html#2000part343 FIL 84-2000: Consumer Protection for Bank Sales of Insurance Federal Register publication of insurance sales rule with preamble that contains useful interpretive information. http://www.fdic.gov/news/news/financial/2000/fil0084.html Interagency Statement on Retail Sales of Nondeposit Investment Products http://www.fdic.gov/regulations/laws/rules/5000-4500.html#5000interagencysor Joint Interpretations of the Interagency Statement on Retail Sales of Nondeposit Investment Products http://www.fdic.gov/regulations/laws/rules/5000-4600.html#5000jointiot Also released as FIL 61-95: Nondeposit Investment Activities http://www.fdic.gov/news/news/financial/1995/fil9561.html FIL 84-2001: Questions and Answers on Consumer Protections for Bank Sales of Insurance: http://www.fdic.gov/news/news/financial/2001/fil0184.html FDIC Legal Advisory Opinion 92-74: Whether Bank May Act as Agent for Sale of Fixed Rate Annuities and Permit Sale of Mutual Funds on Its Premises Through "Dual Employees" and Registered Broker-Dealer Contains useful discussion of compensation. http://www.fdic.gov/regulations/laws/rules/4000-7650.html SOURCE contains a useful list of definitions, under the View Defined Terms button on the first page of the NDP sales folder. Job Aids
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