CFTC Staff Advisory on Risk Management and Market Integrity Under Current Market Conditions

CFTC Letter No. 20-17 Advisories May 13, 2020
Division of Clearing and Risk
Division of Market Oversight
Division of Swap Dealer and Intermediary Oversight To: Designated Contract Markets (DCMs), Futures Commission Merchants (FCMs), and Derivatives Clearing Organizations (DCOs) Subject: Staff Advisory on Risk Management and Market Integrity under Current Market Conditions
I. Introduction
The onset of the COVID-19 pandemic in late 2019 has adversely affected the economies of the United States and other major countries. Global markets, including those regulat￾ed by the Commodity Futures Trading Commission (the Commission), have been af￾fected by both fundamental and technical factors this year as economies and industries have slowed dramatically or shut down completely—resulting in unprecedented market impacts. This economic downturn has coincided with substantially increased market volatility in key agricultural, energy, and financial sectors, including the futures and op￾tions on futures markets regulated by the Commission. The impact of fundamental and technical factors has been particularly acute for contracts that call for physical delivery of the underlying commodity as demonstrated by the unprecedented price moves in cer￾tain contracts. The Divisions of Market Oversight (DMO), Swap Dealer and Intermediary Oversight (DSIO), and Clearing and Risk (DCR) (collectively, the Divisions) issue this advisory to remind DCMs, FCMs, and DCOs that they are expected to prepare for the possibility that certain contracts may continue to experience extreme market volatility, low liquidi￾ty and possibly negative pricing. We note that we are issuing this advisory in the wake of unusually high volatility and negative pricing experienced in the May 2020 West Texas Intermediate (WTI), Light Sweet Crude Oil Futures contract on April 20 (the penultimate day of trading and expi￾ration of the contract). The Divisions wish to emphasize that the subject of this notice applies equally to trading in other commodities, and registrants should remain vigilant U.S. COMMODITY FUTURES TRADING COMMISSION Three Lafayette Centre 1155 21st Street, NW, Washington, DC 20581 Telephone: (202) 418-5000 www.cftc.gov

and prepare accordingly.1 In addition to considering risk controls and related issues, DCMs, FCMs, and DCOs are encouraged to ensure their customers and members have appropriate information on the risks and technical elements of contracts and trading around upcoming expirations. In light of these considerations, the Divi￾sions remind DCMs, FCMs, and DCOs of their obligations to assess changing mar￾ket conditions and take appropriate measures in response as contracts ap￾proach expiration. Given current market conditions, DCMs, FCMs and DCOs are encouraged to regularly assess whether their risk controls and related mecha￾nisms are reasonably designed, fit for purpose, and appropriately implemented.
II. DCM Obligations to Prevent Market Disruption, Adopt Position Limits
and Protect Market Participants
In periods of market volatility such as those recently experienced, it is critical that DCMs remain mindful of their obligations under the Core Principles established in the Com￾modity Exchange Act.2 In particular, we remind DCMs that Core Principle 43 requires them to have the capacity and responsibility to prevent manipulation, price distortion, and disruptions of the delivery or cash-settlement process through market surveillance, compliance, and enforcement practices and procedures. To this end, with respect to physically-delivered contracts, Commission regulation 38.2524 requires each DCM, among other things, to: (a) monitor the convergence between the contract price and the price of the underlying commodity; and (b) monitor the supply of the commodity and its adequacy to satisfy the delivery requirements and make a good-faith effort to resolve conditions that threaten the adequacy of supplies or the delivery process.

1 For the sake of clarity, this Advisory is issued as a prophylactic measure. This Advisory is designed to remind registrants and market participants that continued assessment, preparation and planning is war￾ranted in times of market volatility occasioned by COVID 19. This Advisory does not suggest any element of compliance, or lack thereof, by any registrant. Similarly, this Advisory is not intended to suggest that any particular markets or contracts will experience fundamental or technical issues going forward. 2 7 U.S.C. §7(d). 3 7 U.S.C. §7(d)(4). 4 17 CFR 38.252; see also 17 CFR 38, app. B. We are issuing this advisory in the wake of unusually high volatility and negative pricing experienced in the May 2020 physically-delivered WTI contract, and related reference contracts, on April 20.

With respect to cash-settled contracts, Commission regulation 38.2535 requires the DCM, among other things, to demonstrate that it monitors the pricing of the index to which the contracts will be settled and also the continued appropriateness of the meth￾odology for deriving the index. Commission regulation 38.2556 requires that a DCM es￾tablish and maintain risk control mechanisms to prevent and reduce the potential risk of price distortions and market disruptions, including (but not limited to) market re￾strictions that pause or halt trading in market conditions prescribed by the DCM. Com￾mission regulation 38.2587 refers DCMs to the guidance and acceptable practices in Ap￾pendix B of Part 38 to demonstrate compliance with the requirements of Core Principle 4.8 Furthermore, Core Principle 59 requires each DCM to adopt for each contract of the board of trade, as is necessary and appropriate, position limitations or position account￾ability for speculators in order to reduce the potential threat of market manipulation or congestion—especially for outrights or spread trades involving the delivery month. Ad￾ditionally, Core Principle 1210 requires each DCM to establish and enforce rules to, among other things, promote fair and equitable trading on the contract market. In par￾ticular, Commission regulation 38.65111 requires, among other things, that a DCM have and enforce rules that are designed to protect the market and market participants from abusive practices including fraudulent, noncompetitive or unfair actions, committed by any party. Moreover, DCMs are reminded of their obligations under Core Principle 612 to adopt and maintain rules to provide for the exercise of emergency authority, as is necessary and appropriate, including the authority to liquidate or transfer open positions in any contract; to suspend or curtail trading in any contract; and to require market partici￾pants in any one contract to meet special margin requirements. A DCM that adopts a rule or rule amendment in response to an emergency must file such rule or amendment with the Commission prior to implementation or, if not practicable, at the earliest possi￾5 17 CFR 38.253. 6 17 CFR 38.255. 7 17 CFR 38.258. 8 As to Core Principle 4, Appendix B provides that risk controls must be adapted to the unique characteris￾tics of the markets to which they apply and must be designed to avoid disruptions without unduly inter￾fering with that market’s price discovery function. 9 7 U.S.C. §7(d)(4). 10 7 U.S.C. §7(d)(12). 11 17 CFR 38.651. 12 7 U.S.C. §7(d)(5).

ble time after implementation, but in no event more than twenty-four hours after im￾plementation in accordance with Commission regulation 40.6 (a)(6).13
Appendix B’s guidance, referenced in Commission regulation 38.35114 under Core Prin￾ciple 6, provides that a DCM, “[i]n consultation and cooperation with the Commission …
should have the authority to intervene as necessary to maintain markets with fair and orderly trading and to prevent or address manipulation or disruptive trading practices, whether the need for intervention arises exclusively from the DCM’s market or as part of a coordinated, cross-market intervention.”15
III. Risk Management Program for FCMs
During periods of extreme market volatility, it is imperative that FCMs engage in robust risk management to manage effectively their activities of operating as FCMs and to pro￾tect customer funds. DSIO reminds FCMs of their obligations to maintain effective risk management programs. Commission regulation 1.1116 requires each FCM carrying cus￾tomer accounts to establish, maintain and enforce a system of risk management policies and procedures designed to monitor and manage the risks associated with the activities of the FCM. Regulation 1.11 further provides an FCM’s risk management program must take into account market, credit, foreign currency, liquidity, legal, operational, settle￾ment, segregation, technology, capital, and any other applicable risks to the FCM. As part of its risk management responsibilities, an FCM must monitor its customer ac￾counts to ensure that the FCM is collecting appropriate levels of initial margin to protect against a customer becoming under-margined or defaulting on its positions. An FCM also must monitor the amount of residual interest that the firm maintains in customer segregated accounts to ensure that it holds sufficient funds in such accounts at all times to meet its total obligation to all customers. Each FCM that is a clearing member of a derivatives clearing organization (Clearing FCM) is required by Commission regulation 1.7317 to establish risk-based limits in pro￾prietary and customer accounts based on position size, order size, margin requirements, or similar factors. Regulation 1.73 further requires each Clearing FCM to screen orders for compliance with the risk-based limits, and monitor for the adherence to the risk￾based limits on an intra-day and overnight basis. Each Clearing FCM also is required to conduct stress tests under “extreme but plausible conditions” at least once each week on positions in its proprietary account and on positions in each customer account that 13 17 CFR 40.6(a)(6). 14 17 CFR 38.351. 15 17 CFR 38, app. B. 16 17 CFR 1.11. 17 17 CFR 1.73.

could pose material risk to the FCM.18 Lastly, regulation 1.73 requires each Clearing FCM to evaluate its ability to meet initial and variation margin obligations in cash at least once per week, and to evaluate its ability to liquidate the positions in its proprie￾tary accounts and customer accounts in an orderly manner at least quarterly. Given the market volatility over the last several months, FCMs should assess the effec￾tiveness of the performance of their risk management programs, including the risk management requirements under regulations 1.11 and 1.73, and make any revisions that are necessary to help ensure that risks are appropriately addressed and customer funds are properly safeguarded. In light of recent events, DSIO reminds FCMs to be particularly diligent in monitoring and assessing risks. FCMs should prepare for the potential that certain contracts may experience significant price volatility and, possibly, negative pricing. An FCM with pro￾prietary or customer positions in such a futures contract or options on such contract should carefully monitor the contract as it gets closer to the expiration date to ensure that the FCM and its customers can meet their respective financial obligations and fulfill their obligations to make or take delivery on the futures contract.
IV. Risk Disclosures by FCMs
Commission regulation 1.55 generally requires FCMs to provide each customer with the risk disclosure specified in paragraph (b) of such regulation prior to opening a futures trading account for such customer. Paragraph (1) of such risk disclosure states:
You may sustain a total loss of the funds that you deposit with your bro￾ker to establish or maintain a position in the commodity futures market, and you may incur losses beyond these amounts. If the market moves against your position, you may be called upon by your broker to deposit a substantial amount of additional margin funds, on short notice, in or￾der to maintain your position. If you do not provide the required funds within the time required by your broker, your position may be liquidated at a loss, and you will be liable for any resulting deficit in your account. DSIO advises each FCM that it may be prudent to re-familiarize customers with this part of the required risk disclosure, especially the warning that customers may incur losses beyond amounts deposited with the FCM and that this may occur in the event of nega￾tive contract prices. DSIO believes it may also be prudent to ensure that customers un￾derstand the mechanics of contract settlement at negative prices. 18 17 CFR 1.73(a)(4).

V. Risk Management Program for DCOs
Commission regulation 39.13 requires a DCO to have the ability to manage the risks as￾sociated with discharging its responsibilities through the use of appropriate tools and procedures. In particular, Commission regulation 39.13(g)(2)(ii) requires that a DCO use models that generate initial margin requirements sufficient to cover the DCO's po￾tential future exposures to clearing members based on price movements in the interval between the last collection of variation margin and the time within which the DCO esti￾mates that it would be able to liquidate a defaulting clearing member's positions. A DCO is required by regulation 39.13(g)(7)(i) to conduct back tests on a daily basis with respect to products that are experiencing significant market volatility—especially in con￾tracts that call for the actual delivery of the underlying physical commodity—to test the adequacy of its initial margin requirements. In light of recent events, DCOs should pre￾pare for the potential that certain contracts may experience significant price volatility, and that negative pricing is a possibility.

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Questions regarding this advisory can be directed towards the Division of Swap Dealer and Intermediary Oversight (Josh Beale, Associate Director (202) 418-5446), the Divi￾sion of Clearing and Risk (Parisa Nouri, Associate Director (202) 418-6620), or the Di￾vision of Market Oversight (Nancy Markowitz, Deputy Director (202) 418-5453). Issued in Washington, D.C. on May 13, 2020, by the Division of Swap Dealer and Intermediary Oversight, the Division of Clearing and Risk, and the Di￾vision of Market Oversight. /s Joshua B. Sterling __ Joshua B. Sterling Director Division of Swap Dealer and Intermediary Oversight /s Clark Hutchison __ Clark Hutchison Director Division of Clearing and Risk /s Dorothy DeWitt___ Dorothy DeWitt Director Division of Market Oversight