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Fed governor “highly skeptical” of U.S. CBDC
On October 14, Federal Reserve Governor Christopher J. Waller spoke during the “Digital Currencies and National Security Tradeoffs” symposium presented by the Harvard National Security Journal regarding the U.S. dollar and central bank digital currencies (CBDC). Waller said that he is “highly skeptical of whether there is a compelling need for the Fed to create a digital currency.” Regarding foreign CBDCs, Waller first considered the emergence of foreign CBDCs in a world without the U.S. CBDC. He noted that “advocates for a CBDC tend to promote the potential for a CBDC to reduce payment frictions by lowering transaction costs, enabling faster settlement speeds, and providing a better user experience.” Because of “the well-known network effects in payments,” Waller pointed out that “the more users the foreign CBDC acquires, the greater will be the pressure on the non-U.S. company to also use the foreign CBDC.”
However, Waller considered that the broader factors underpinning the dollar’s international role would not change. Waller further noted the possibility that a foreign-issued CBDC could have the opposite of its intended effect and make companies even less willing to use that country’s currency. Waller further noted that creating a U.S. CBDC “would come with a number of costs and risks, including cyber risk and the threat of disintermediating commercial banks, both of which could harm, rather than help, the U.S. dollar's standing internationally.” He said he believes that a U.S. CBDC would raise many issues, including money laundering and international financial stability. Waller also considered a scenario in which a privately issued stablecoin pegged to a sovereign currency is available for international payments. He stated that they may be more attractive than existing options due to their ability to provide real-time payments at a lower cost and their ability to provide a safe store of value for individuals residing in or transacting with countries with weak economic fundamentals. He further warned that stablecoins “must be risk-managed and subject to a robust supervisory and regulatory framework.” Waller reiterated that "no decisions have been made" at the Fed on CBDCs and noted that his remarks are intended to provide a free and open dialogue on their utility. He also noted that he is “happy to engage in vigorous debate regarding my view,” and “remain[s] open to the arguments advanced by others in this space.”
House subcommittee asks CFPB for data on crypto-related fraud
On October 14, the House Subcommittee on Economic and Consumer Policy sent a letter to CFPB Director Rohit Chopra requesting information and documents on the Bureau’s efforts to combat cryptocurrency-related fraud. In the letter, Representative Raja Krishnamoorthi (D-IL) expressed concerns that Congress “may need” to pass legislation to help “bring stability to the digital asset industry.” He also argued that “a lack of a central authority to flag suspicious transactions in many situations, the irreversibility of transactions," and the consumers and investors' limited understanding has made “cryptocurrency a preferred transaction method for scammers.” Among other things, the letter asked the Bureau to provide information by October 28 concerning (i) its efforts to combat crypto-related scams and fraud and inform consumers about the risks related to investments in cryptocurrencies; (ii) its authority to identify and investigate potentially fraudulent digital assets or accounts used on cryptocurrency exchanges associated with illicit activities; (iii) its regulatory authority concerning cryptocurrencies; and (vi) documents setting out the existing framework for interagency cooperation on the regulation of cryptocurrencies. Krishnamoorthi also requested that the Bureau provide answers by October 21 to several questions, such as “what tools, including but not limited to code audits, disclosure requirements, or consumer alerts, could provide consumers with additional information to better assess the risks associated with a digital asset?” and “should cryptocurrency holdings be treated as commodities, securities, or both?”
Senator urges SEC to issue crypto rulemaking
On October 13, Senator John Hickenlooper (D-CO) sent a letter to SEC Chair Gary Gensler urging him to issue regulations on digital asset securities. According to the letter, Hickenlooper urged the agency to publish regulations through a notice-and-comment process, stating that “existing laws and regulations were not designed to deal with how digital assets are being used in the market.” Hickenlooper noted that the SEC has repeatedly mentioned that existing securities regulations do not ‘cleanly apply’ to digital securities and said that retail investors may not always receive proper disclosures for comprehending the risks tied to digital assets. Hickenlooper also commented that “there are some products and investments, such as Initial Coin Offerings (ICOs), where the SEC is well positioned to offer regulatory guidance since ICOs operate similarly to a traditional financial product.” He specifically urged the SEC to, among other things, clarify what types of digital assets are securities, address how digital securities should be issued and listed, determine what disclosures are necessary for investors to be properly informed, and establish a registration regime for digital asset security trading platforms.
FTC, DOJ participate in G-7 digital competition summit
On October 12, the DOJ and FTC announced their participation in a G7 Joint Competition Policy Makers & Enforcers Summit (Summit) as part of the 2022 G7 Digital and Technology Track. The Summit, hosted by the German Bundeskartellamt and Ministry for Economic Affairs and Climate Action, examined how G7 governments approach competition policy and enforcement in digital markets. According to the agencies, the Summit provided “a unique opportunity for competition officials to discuss common areas of interest and consider areas for increased cooperation and coordination to support competitive digital markets.” The participating delegates included G7 competition authorities and economic ministries in Canada, France, Germany, Italy, Japan, the U.K., and the U.S., in addition to the European Commission. The agencies also noted that to prepare for the Summit, the agencies “contributed to the Compendium of Approaches to Improving Competition in Digital Markets, with highlights from G7 competition authority’s work on digital markets," as well as the Policy Makers Inventory of legislative approaches to competition in digital markets within the G7. According to FTC Chair Lina Khan, “international cooperation is especially crucial as enforcers navigate the global challenges posed by dominant digital platforms and work to promote fair competition and the many benefits it delivers.”
Fed vice chair discusses regulating financial innovation
On October 12, Federal Reserve Vice Chair for Supervision Michael S. Barr delivered remarks at D.C. Fintech Week in a speech titled Managing the Promise and Risk of Financial Innovation. Barr’s remarks focused on financial innovation supported by new technologies, or fintech. Among other things, Barr discussed supporting innovation with appropriate regulation, striking the right balance for crypto-asset activity, regulating stablecoins, recognizing the risks of tokenizing bank liabilities, advancing customer autonomy, and providing public sector support for payment innovation. Barr noted that cryptoassets’ rapid growth, in market capitalization and activity outside and inside supervised banks requires oversight, including safeguards to ensure that crypto service providers are subject to similar regulations as other financial services providers. Barr stated that “[t]he same type of activity should be regulated in the same way,” and this remains the case “even when the activity may look different from the typical activities we regulate, or when it involves an exciting new technology or a new way to provide traditional financial services.” He also disclosed that there are additional types of crypto asset-related activities where the Fed may need to provide guidance to the banking sector in the future. Barr noted that since “crypto assets have proved to be so volatile, they are unlikely to grow into money substitutes and become a viable means to pay for transactions.” He also warned banks seeking to experiment with these new technologies that they should only do so "in a controlled and limited manner.” Regarding the risks of tokenizing bank liabilities, Barr expressed concerns, stating that banks’ crypto-asset-related activities pose “novel risks,” and said that stablecoins could eventually pose a risk to financial stability and that regulators need to put in guardrails before their adoption is more widespread. Barr also acknowledged that not all tokenization arrangements are the same. He stated that potential designs “range from issuance of tokens on private, controlled networks to facilitate payments within or among banks, to proposals that explore issuance of freely circulating tokens on open, permissionless networks.”
Republicans seek answers from OCC on bank-fintech partnerships
On October 11, House Financial Services Committee Ranking Member Patrick McHenry (R-NC), joined by Republican members of the Task Force on Financial Technology, sent a letter to acting Comptroller of the Currency Michael J. Hsu asking for clarification on the OCC’s position regarding bank-fintech partnerships. The lawmakers asserted that the OCC previously “worked to provide banks and their customers with a clear understanding of the regulatory and supervisory expectations surrounding emerging products and services,” as well as how to properly assess risk, but contended that leadership under the current administration has not continued to do so. Citing the importance of innovation to the U.S. economy and the impact new financial products and services can have on costs, inclusion, and competition, the letter expressed concerns related to the potential for further uncertainty surrounding these partnerships and the resulting consequences for consumers. “Technological innovation fostered by fintech partnerships has enabled banks to reach segments of the population that may have been left behind and increase customer engagement,” the lawmakers wrote, expressing their belief that the benefits from these partnerships far outweigh the risks. “Much of this innovation has been driven by industry newcomers that have developed a novel product or business model. When properly regulated, these partnerships can provide greater financial inclusion, spur technological innovation, and foster competition that ultimately benefits consumers.”
Referring to an action taken by President Biden in June 2021, which repealed the OCC’s “true lender” rule pursuant to the Congressional Review Act (covered by InfoBytes here), the lawmakers asked the OCC whether it anticipates fintech partnerships ending as a result of potential regulatory changes, and questioned how the agency plans to “ensure that examiners do not discourage innovation through fintech partnerships” or “impose unreasonable burdens on banks and fintechs.” The letter also asked the OCC to respond to a series of questions, including, among other things, how it plans to determine the acceptable terms for bank-fintech partnerships, how it intends to analyze fintechs that are helping to bring the banking business into the digital era, and how examiners will evaluate a bank’s assessments of third parties’ cybersecurity risk management and resilience capabilities and whether such evaluations will “be carefully tailored to the actual risk posed by the particular bank-fintech partnership.”
OFAC, FinCEN take action against virtual currency exchange
On October 11, the U.S. Treasury Department’s Office of Foreign Assets Control (OFAC), together with the Financial Crimes Enforcement Network (FinCEN), announced two settlements for more than $24 million and $29 million, respectively, with a Washington state-based virtual currency exchange. According to OFAC’s announcement, this is the agency’s largest virtual currency enforcement action to date, and represent the first parallel actions taken by FinCEN and OFAC in this space.
OFAC settlement. OFAC’s web notice stated that between March 28, 2014 and December 31, 2017, the exchange operated 1,730 accounts that processed 116,421 virtual currency-related transactions totaling roughly $263,451,600.13, in apparent violation of OFAC sanctions against Cuba, Ukraine, Iran, Sudan, and Syria. Specifically, due to alleged deficiencies in the exchange’s sanctions compliance procedures, the exchange failed to prevent persons located in the sanctioned jurisdictions from using its platform to engage in more than $263,000,000 worth of virtual currency-related transactions. OFAC claimed that while the IP addresses and physical address information collected on each customer at onboarding should have given the exchange reason to know that the persons were located in jurisdictions subject to sanctions, the exchange did not “screen customers or transactions for a nexus to sanctioned jurisdictions.” Rather, the exchange only screened transactions for hits against lists including OFAC’s List of Specially Designated Nationals and Blocked Persons. In arriving at the settlement amount of $24,280,829.20, OFAC considered various aggravating factors, including that the exchange did not exercise due caution or care for its sanctions compliance obligations and conveyed economic benefit to persons located in jurisdictions subject to OFAC sanctions, thus causing harm to the integrity of multiple sanctions programs. OFAC also considered various mitigating factors, including that the exchange provided substantial cooperation throughout the investigation, most of the transactions were for a relatively small amount and represented a small percentage when compared to the exchange’s annual volume of transactions, and the exchange has undertaken remedial measures intended to minimize the risk of recurrence of similar conduct.
FinCEN settlement. According to FinCEN’s press release, an investigation found that from February 2014 through December 2018, the exchange failed to maintain an effective AML program, resulting in its inability to appropriately address risks associated with its products and services, including anonymity-enhanced cryptocurrencies. The exchange also failed to effectively monitor transactions on its trading platform, and relied “on as few as two employees with minimal anti-money laundering training and experience to manually review all of the transactions for suspicious activity, which at times were over 20,000 per day.” FinCEN claimed that the exchange conducted more than 116,000 transactions valued at over $260 million with persons located in jurisdictions subject to OFAC sanctions, including those operating in Iran, Cuba, Sudan, Syria, and the Crimea region of Ukraine, and failed to file suspicious activity reports (SARs) between February 2014 and May 2017. The exchange also “failed to file SARs on a significant number of transactions involving sanctioned jurisdictions, including the processing of over 200 transactions that involved $140,000 worth of virtual assets—nearly 100 times larger than the average withdrawal or deposit on the Bittrex platform—and 22 transactions involving over $1 million worth of virtual assets,” FinCEN said in its announcement. Under the terms of the consent order, the exchange—which admitted to willfully violating the Bank Secrecy Act (BSA) and its implementing regulations—will pay a $29,280,829.20 civil money penalty. FinCEN stated it will credit the $24,280,829.20 the exchange has agreed to pay for the OFAC violations.
During remarks delivered at the Association of Certified Anti-Money Laundering Specialists, Under Secretary for Terrorism and Financial Intelligence Brian Nelson discussed, among other topics, Treasury’s efforts to counter illicit finance. Nelson highlighted the aforementioned settlements, stressing that failing to comply with BSA/AML requirements and SARs filing obligations “are not something that companies focused on growth can simply put off to a later day.” He also emphasized that Treasury will continue to strengthen ties with interagency partners and international counterparts to identify and pursue potential violations.
SEC accuses crypto companies of $37 million scheme
On September 30, the SEC filed a complaint in the U.S. District Court for the Southern District of Florida against two cryptocurrency companies and their principals (collectively, “defendants”) claiming that they falsely promised investors that their cryptocurrency was backed by a $10 billion gold bullion investment. According to the complaint, the SEC alleged that between May 2018 and January 2019, the defendants “made material misrepresentations and omissions to investors while they were offering and selling [a crypto asset that the companies owned and controlled] in a series of news and press releases issued to the public." The releases falsely claimed that one of the cryptocurrency companies had acquired and received title to $10 billion in gold bullion and intended to back each token that was owned and controlled by the companies issued and sold to investors with $1.00 worth of this gold. One of the companies claimed to have acquired the gold through a purchase transaction with one of the principles and his company. The defendants also misrepresented that independent accounting firms had performed an “audit” of the gold and verified its existence. In reality, the gold acquisition transaction was a sham. The SEC’s complaint alleged violations of anti-fraud and securities registration provisions of the federal securities laws. The SEC is seeking permanent injunctive relief, disgorgement plus prejudgment interest, civil penalties and officer-and-director bars against the individual defendants.
Hsu says regulators should coordinate efforts to mitigate crypto risks
On October 11, acting Comptroller of the Currency Michael J. Hsu delivered remarks before DC Fintech Week 2022, discussing the importance of identifying and monitoring cryptocurrency risks to protect consumers and the financial system. Among other things, Hsu noted that crypto “is an immature industry based on an immature technology.” He added that the industry still needs to deal with “the unabating volume of scams, hacks, and fraud.” Hsu voiced his concerns about integrating crypto into the traditional financial system without a more “accurate and complete” view of the risks. He noted that “[t]he largest crypto players today want to provide an increasingly broad range of services seamlessly under one roof for their customers.” Hsu pointed out that even though commingling crypto activities could “offer convenience for consumers and cost savings for crypto firms, conflicts abound and the riskiest activity threatens the whole bundle.” He warned that banks looking “to engage in crypto activities may want to carefully consider the scope of what they want to do, start with what can be most readily risk managed, and impose gates, through limits and other controls, to prevent uncontrolled expansion and growth into higher-risk activities.”
Hsu also delivered remarks before the Harvard Law School and Program on International Financial Systems Roundtable on Institutional Investors and Crypto Asset, discussing the need for clarifying supervisory expectations related to crypto activities and the role of regulators to ensure safety and soundness while promoting responsible innovation. Hsu said that regulators should coordinate efforts to write rules that help mitigate risks associated with digital assets. He emphasized that the term “don’t chase” for financial regulators means “not lowering our standards when dealing with crypto.” He further pointed out that “[s]haring information with peer agencies and seeking a common understanding of the risks and opportunities in the space can help ensure that regulatory standards remain high and the playing field stays level.” Hsu concluded by reiterating that he is a “crypto skeptic,” stating that his “skepticism of crypto stems from a frustration that the most promising innovations have been crowded out by hype and a fixation on trading,” and said that “[p]rogrammability, composability, and tokenization hold promise.”
FSB reports on stablecoins and crypto-asset activities
Recently, Financial Stability Board (FSB) Chair Klaas Knot sent a letter to the G20 Finance Ministers and Central Bank Governors concerning global financial stability, followed by the release of two FSB reports. The letter stated that “turmoil in crypto-asset markets has validated many of the FSB’s concerns about crypto assets,” and noted that the “‘crypto winter’ has reinforced [its] assessment of existing structural vulnerabilities.” The letter expressed concerns that the risks crypto assets pose to financial stability are "likely to come back to the fore sooner rather than later.” Knot stated that the FSB’s report on stablecoins expanded recommendations for the regulation of stablecoins, which are digital tokens that aim to maintain a one-on-one value with less volatile assets such as the euro or dollar. In the stablecoin report, the FSB stated that most existing stablecoins would not meet its recommendations at present, and would require “significant improvements” to their governance, risk management, stabilization mechanisms and disclosures. Knot also discussed the FSB's report on crypto-asset activities and markets, which focuses on regulatory, supervisory, and oversight issues relating to crypto-assets to help ensure safe innovation. The report noted that “[c]orrelations between crypto-asset prices and mainstream equity indices have been steadily increasing since year-end 2021 and peaked in May 2022, when the market stress began.” The letter further described that in 2020, G20 Leaders endorsed the Roadmap for Enhancing Cross-border Payments to address the frictions that payments currently face, and thereby achieve faster, cheaper, more transparent and more inclusive cross-border payment services. As previously covered by InfoBytes, Knot stated that the recent FSB report on the roadmap presents “priorities for this new phase of the work, and proposes an intensified public-private sector collaboration to take this forward.” In regard to cyber risks, he stated that cyber-risk safeguards are important due to rapidly growing cyber incidents. He further stated that the FSB “is working to promote a resilient global financial system in the near term and over the longer run, supporting policymakers in the G20 to foster stronger, equitable and inclusive growth.”