Rule · FCA · 8 Mar 2019
The Financial Conduct Authority amends the Decision Procedure and Penalties Manual and the Enforcement Guide to establish decision-making procedures for regulating Securitisation Repositories and enforcing the Securitisation Regulations 2018. Near-final rules specify that the Regulatory Decisions Committee or executive procedures handle registration refusals, withdrawals, financial penalties, and public censures for Securitisation Repositories, effective on exit day. Final rules grant the Regulatory Decisions Committee authority to impose suspensions, conditions, limitations, or other restrictions on individuals and authorised persons for breaches of the 2018 Regulations.
Policy Statement
PS19/15
June 2019
Securitisation (Amendment) (EU Exit)
Regulations 2019 and Securitisation
Regulations 2018 (near final and final rules)
PS19/15 Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) This relates to Consultation Paper 19/11 which is available on our website at www.fca.org.uk/publications Email:
cp19-11@fca.org.uk
Contents
1 Summary 3
2 Securitisation Repositories – near final rules 6 3 Securitisation Regulations 2018 – final rules 8
Annex 1
List of non-confidential respondents 9
Annex 2
Abbreviations used in this paper 10
Appendix 1
Near final rules (legal instrument)
Appendix 2
Final rules (legal instrument)
PS19/15
Chapter 1
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) 1 Summary Introduction
1.1 The Securitisation (Amendment) (EU Exit) Regulations 2019 (the Exit SI) will come
into force when the UK leaves the European Union (exit day).. It will transfer powers for the regulation of Securitisation Repositories (SRs) to the FCA from the European Securities and Markets Authority (ESMA).
1.2 In our Consultation Paper CP19/11 we consulted on proposed rules to enable us to
fulfil our new role as regulator of SRs effectively. We are now publishing near final rules to implement the Exit SI. These rules will be made final when the Exit SI comes into force on exit day.
1.3 We are also publishing final rules to reflect additional powers given to us by the
Securitisation Regulations 2018 (2018 Regulations). This follows our consultation paper and policy statement, CP18/30 and PS18/25 respectively, which were based on the draft 2018 Regulations. Who this affects
1.4 These Handbook changes will affect:
PS19/15
Chapter 1
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules)
1.7 When we consulted on the 2018 Regulations in CP18/30 we based our proposals on the
draft statutory instrument. The final 2018 Regulations gave us additional enforcement powers which were not contained in the draft. This paper sets out our policy for the additional powers.
1.8 ESMA currently holds the responsibility for supervising SRs in the European Union (EU)
under the EU SR. Once the UK leaves the EU, the Treasury intends to make the FCA the responsible body under the UK regime.
1.9 When we consulted on our proposed rule changes, the Treasury had laid before
Parliament the draft Exit SI that will transfer these responsibilities to us. We explained that our proposals were based on our understanding of the Treasury’s intentions at that time and were subject to change if the final Exit SI differed from that understanding. The Exit SI has now been finalised and does not differ significantly from the draft on which we based our consultation.
1.10 As such the final and near-final rules in this PS are substantially the same as those we
consulted on.
What we are changing
1.11 We consulted in CP19/11 on proposed changes to the Handbook’s Decision Procedure
and Penalties Manual (DEPP) and the Enforcement Guide (EG) because of the changes the Exit SI will introduce for the supervision and enforcement of SRs. We also consulted on changes to DEPP and EG in light of additional enforcement powers given to us in the 2018 Regulations.
1.12 The legal instrument and draft legal instrument accompanying this PS contain the final
and near-final rules. We are making near-final rules for the changes to DEPP and EG described in Chapter 2 of the PS. These rules are subject to the commencement of the Exit SI. We intend to finalise these rules once the Exit SI enters into force on exit day.
1.13 Changes arising from the Exit SI – We are making changes to DEPP and EG to enable
us to apply our existing enforcement processes in our new role as regulator of SRs:
PS19/15
Chapter 1
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) Summary of feedback and our response
1.16 We received 1 formal response to the CP and the respondent supported our overall
approach. As a result, our final and near-final rules are the same as those we consulted on in CP19/11, except for some minor amendments to clarify our decision-making procedures and update references to the legal instruments. Equality and diversity considerations
1.17 We have considered the equality and diversity issues that may arise from this PS.
1.18 We do not consider that the rule changes in this PS negatively affect any of the groups
with protected characteristics under the Equality Act 2010 ie age, disability, sex, marriage or civil partnership, pregnancy and maternity, race, religion and belief, sexual orientation and gender reassignment. We received no comments from respondents to CP19/11 on our equality impact assessment. Next steps
1.19 Firms who are considering applying for registration as a Securitisation Repository (SR)
should begin their formal application once the Exit SI comes into effect.
PS19/15
Chapter 2
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) 2 Securitisation Repositories – near final rules
2.1 We consulted on proposals to amend DEPP and EG in light of the Exit SI laid by
Treasury. The Exit SI will amend the EU SR and give us equivalent powers over SRs as we will have over trade repositories under the Trade Repositories EU Exit Regulations (SI 2019/335).
2.2 The Exit SI:
PS19/15
Chapter 2
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) are made in response to the written notice setting out our decision, a review of the decision will be made under RDC procedures.
PS19/15
Chapter 3
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules) 3 Securitisation Regulations 2018 – final rules
3.1 We consulted on amendments to DEPP and EG in light of additional powers given to us
by the 2018 Regulations, which came into effect on 1 January 2019. This followed our earlier CP18/30 and PS18/25 which were based on the draft SI in which the additional powers were not included.
3.2 The additional powers consist of the power to impose a suspension, condition,
limitation or other restrictions on persons for a breach of a requirement imposed by or under the 2018 Regulations.
3.3 We received 1 formal response to these proposals which supported our overall
approach. So, the near-final rules are the same as those we consulted on, except for some minor changes to references to legal instruments. Changes to DEPP
3.4 We have amended DEPP 2 Annex 1 so that it sets out that the RDC will be the decisionmaker for:
PS19/15
Annex 1
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules)
Annex 1
List of non-confidential respondents
European DataWarehouse GmbH
PS19/15
Annex 2
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules)
Annex 2
Abbreviations used in this paper
CP Consultation Paper
DEPP Decision Procedure and Penalties Manual EG Enforcement Guide ESMA European Securities and Markets Authority EU European Union EU SR European Union Securitisation Regulation Exit SI The Securitisation (Amendment) (EU Exit) Regulations 2019 FCA Financial Conduct Authority PS Policy Statement SI Statutory Instrument SR Securitisation Repository RDC Regulatory Decisions Committee the Treasury Her Majesty’s Treasury Regulations the Securitisation Regulations 2018 We have developed the policy in this Policy Statement in the context of the existing UK and EU regulatory framework. The Government has made clear that it will continue to implement and apply EU law until the UK has left the EU. We will keep the proposals under review to assess whether any amendments may be required in the event of changes in the UK regulatory framework in the future. All our publications are available to download from www.fca.org.uk. If you would like to receive this paper in an alternative format, please call 020 7066 7948 or email: publications_graphics@fca.org.uk or write to: Editorial and Digital team, Financial Conduct Authority, 12 Endeavour Square, London E20 1JN
PS19/15
Appendix 1
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules)
Appendix 1
Near final rules (legal instrument)
FCA 2019/XX
SECURITISATION REPOSITORIES (DEPP AND EG) INSTRUMENT 2019 Powers exercised A. The Financial Conduct Authority (“the FCA”) makes this instrument in the exercise of:
(1) section 139A (Power of the FCA to give guidance) of the Financial Services and Markets Act 2000 (“the Act”); (2) the powers of direction, guidance and related provisions in or under the following provisions of the Over the Counter Derivatives, Central Counterparties and Trade Repositories (Amendments etc. and Transitional Provision) (EU Exit) Regulations 2018 (SI 2019/335) as applied by Regulation 15 of the Securitisation (Amendment) (EU Exit) Regulations 2019 (SI 2019/660):
(a) regulation 69 (Statement of policy);
(b) regulation 71 (Powers to issue guidance); (c) regulation 75 (Application of Part 11 of the Act (information gathering and investigations)); and (d) regulation 76 (Application of Part 26 of the Act (notices)). Commencement B. This instrument comes into force on exit day as defined in the European Union (Withdrawal) Act 2018, immediately after the changes made by the Trade Repositories (Guidance) Instrument 2019 come into force. Amendments to the Handbook
C. The Glossary of definitions is amended in accordance with Annex A to this
instrument.
D. The Decision Procedure and Penalties manual (DEPP) is amended in accordance with
Annex B to this instrument.
Material outside the Handbook
E. The Enforcement Guide (EG) is amended in accordance with Annex C to this instrument.
FCA 2019/XX
Citation
F. This instrument may be cited as the Securitisation Repositories (DEPP and EG) Instrument 2019. By order of the Board 30 May 2019
FCA 2019/XX
Annex A
Amendments to the Glossary of definitions
Insert the following new definition in the appropriate alphabetical position. The text is not underlined. Securitisation (Amendment) (EU Exit) Regulations the Securitisation (Amendment) (EU Exit) Regulations 2019 (SI 2019/660).
FCA 2019/XX
Annex B
Amendments to the Decision Procedure and Penalties manual (DEPP) In this Annex, underlining indicates new text. 2 Statutory notices and the allocation of decision making …
2.5 Provision for certain categories of decision
…
2.5.18 G Some of the distinguishing features of notices given under enactments
other than the Act are as follows:
…
(8) Securitisation Regulation (as amended by the Securitisation (Amendment) (EU Exit) Regulations): where the FCA exercises its powers to refuse an application for registration of a securitisation repository under article 12, or to refuse an application made by a securitisation repository to withdraw its registration under article 13a, it must give a written notice in accordance with article 13(6). In these circumstances, the decision to give a written notice under
article 13(6) will be taken by FCA staff under executive
procedures.
Where the FCA exercises its powers to withdraw the registration of a securitisation repository on its own initiative under article 13a, it must give a written notice in accordance with article 13(6)(b). In these circumstances, the decision to give a written notice under article 13(6)(b) will be taken by the RDC. Upon receipt of a written notice under regulation 13a, the securitisation repository may decide to seek a review or to refer the matter to the Tribunal. If the securitisation repository decides to seek a review of the decision set out in the regulation 13a notice, they can make representations to the RDC. If the RDC decides to maintain the original decision, the securitisation repository may refer the RDC’s decision to do so to the Tribunal. 2 Annex 1G Warning notices and decision notices under the Act and certain other enactments …
FCA 2019/XX
Trade Repositories
(EU Exit)
Regulations
Description Handbook reference
Decision maker
…
Regulations 65(b) and 66(b) when the FCA is proposing or deciding to impose a financial penalty under regulation 68 RDC Securitisation (Amendment) (EU Exit) Regulations Description Handbook reference Decision maker Regulations 65(a) and 66(a) of the Trade Repositories (EU Exit) Regulations as applied by regulation when the FCA is proposing or deciding to publish a statement under regulation 67 of the Trade Repositories (EU Exit) Regulations as applied by regulation 15 RDC Regulations 65(b) and 66(b) of the Trade Repositories (EU Exit) Regulations as applied by regulation when the FCA is proposing or deciding to impose a financial penalty under regulation 68 of the Trade Repositories (EU Exit) Regulations as applied by regulation 15 RDC 2 Annex 2G Supervisory notices … Trade Repositories (EU Exit) Regulations Description Handbook reference Decision maker
FCA 2019/XX
…
Article 71a(6) and
71a(10) when the FCA is exercising its power under article 71(3) to refuse an application made by a trade repository to withdraw its registration RDC or executive procedures (see DEPP 2.5.18G(7)) Securitisation (Amendment) (EU Exit) Regulations Description Handbook reference Decision maker
Article 13(6)(a) and
13(11)(a) of the
Securitisation
Regulation as amended by regulation 15 when the FCA is exercising its power to refuse an application for registration of a securitisation repository under article 12 of the Securitisation Regulation as amended by regulation 15 RDC or executive procedures (see DEPP 2.5.18G(8))
Article 13(6)(b) and
13(11)(b) of the
Securitisation
Regulation as amended by regulation 15 when the FCA is exercising its power to withdraw the registration of a securitisation repository on its own initiative under article 13a(1) or 13a(2) of the Securitisation Regulation as amended by regulation 15 RDC (see DEPP 2.5.18G(8))
Article 13(6)(c) and
13(11)(c) of the
Securitisation
Regulation as amended by regulation 15 when the FCA is exercising its power to refuse an application made by a securitisation repository to withdraw its registration under article 13a(3) of the Securitisation Regulation as amended by regulation 15 RDC or executive procedures (see DEPP 2.5.18G(8)) … Sch 4 Powers Exercised …
FCA 2019/XX
Sch
4.2G
The following additional powers and related provisions have been exercised by the FCA to make the statements of policy in DEPP:
…
Regulation 76 (Application of Part 26 of the Act (notices) of the Trade Repositories (EU Exit) Regulations Regulation 69 (Statement of policy) of the Trade Repositories (EU Exit) Regulations, as applied by regulation 15 of the Securitisation (Amendment) (EU Exit) Regulations Regulation 71 (Powers to issue guidance) of the Trade Repositories (EU Exit) Regulations, as applied by regulation 15 of the Securitisation (Amendment) (EU Exit) Regulations Regulation 75 (Application of Part 11 of the Act (information gathering and investigations) of the Trade Repositories (EU Exit) Regulations, as applied by regulation 15 of the Securitisation (Amendment) (EU Exit) Regulations Regulation 76 (Application of Part 26 of the Act (notices) of the Trade Repositories (EU Exit) Regulations, as applied by regulation 15 of the Securitisation (Amendment) (EU Exit) Regulations
FCA 2019/XX
Annex C
Amendments to the Enforcement Guide (EG)
Insert the following new section after EG 19.38 (UK Securitisation Regulations). The text is not underlined. 19.38A Securitisation (Amendment) (EU Exit) Regulations 2019 19.38A. Supervisory and enforcement functions in respect of securitisation repositories under the Securitisation Regulation were transferred from ESMA to the FCA through the Securitisation (Amendment) (EU Exit) Regulations on exit day. The Securitisation (Amendment) (EU Exit) Regulations amend the Securitisation Regulation to, amongst other reasons, apply the Trade Repositories (EU Exit) Regulations. In places, these regulations in turn apply provisions of the Act. 19.38A. The FCA’s approach to enforcement under the Securitisation Regulation in relation to securitisation repositories will mirror our general approach to enforcing the Act, as set out in EG. We will seek to exercise our enforcement powers in a manner that is transparent, proportionate, responsive to the issue and consistent with our publicly stated policies. We will also seek to ensure fair treatment when exercising our enforcement powers. Finally, we will aim to change the behaviour of the person who is the subject of our action, to deter future non-compliance by others, to eliminate any financial gain or benefit from non-compliance and, where appropriate, to remedy harm caused by noncompliance. 19.38A. The regulatory powers which the Securitisation (Amendment) (EU Exit) Regulations provide to the FCA include the power:
(1) to require information and appoint investigators; (2) of entry and inspection; (3) to publicly censure; (4) to impose financial penalties; and (5) to apply for an injunction. Conduct of investigations under the Securitisation Regulation as amended by the Securitisation (Amendment) (EU Exit) Regulations 19.38A. The Securitisation (Amendment) (EU Exit) Regulations and the Trade Repositories (EU Exit) Regulations apply much of Part 11 of the Act. The effect of this is to apply the same procedures under the Act for appointing investigators and requiring information when investigating breaches of the Securitisation Regulation.
FCA 2019/XX
19.38A.
The FCA will notify the subject of the investigation that we have appointed investigators to carry out an investigation under the Securitisation Regulation and the reasons for the appointment, unless notification is likely to prejudice the investigation or otherwise result in it being frustrated. The FCA expects to carry out a scoping visit early on in the enforcement process in most cases. The FCA’s policy in non-criminal investigations under the Securitisation Regulation is to use powers to compel the provision of information in the same way as we would during an investigation under the Act. Decision making under the Securitisation Regulation as amended by the Securitisation (Amendment) (EU Exit) Regulations 19.38A. The decision-making procedures for those decisions under the Securitisation Regulation requiring the giving of a warning notice, decision notice or supervisory notice are dealt with in DEPP. 19.38A. The Securitisation Regulation requires the FCA to give third party rights as set out in section 393 of the Act, and to give access to certain material as set out in
section 394 of the Act as applied by the Securitisation Regulation and the
Trade Repositories (EU Exit) Regulations.
Imposition of penalties under the Securitisation Regulation as amended by the Securitisation (Amendment) (EU Exit) Regulations 19.38A. When determining whether to take action to impose a penalty or to issue a public censure under the Securitisation Regulation, the FCA’s policy includes having regard to the relevant factors in DEPP 6.2 and DEPP 6.4. The FCA’s policy in relation to determining the level of a financial penalty includes having regard, where relevant, to DEPP 6.5, DEPP 6.5A, DEPP 6.5B and DEPP 6.5D. 19.38A. As with cases under the Act, the FCA may settle or mediate appropriate cases involving non-criminal breaches of the Securitisation Regulation to assist us to exercise our functions under the Securitisation Regulation in the most efficient and economical way. See DEPP 5, DEPP 6.7 and EG 5 for further information on the settlement process and the settlement discount scheme. 19.38A. The FCA will apply the approach to publicity that is outlined in EG 6, read in light of regulation 76 of the Trade Repositories (EU Exit) Regulations as applied by article 15 of the Securitisation Regulation. Statement of policy in section 169(7) interviews (as implemented by the Securitisation (Amendment) (EU Exit) Regulations)) 19.38A. The Securitisation (Amendment) (EU Exit) Regulations amend the Securitisation Regulation to apply regulation 75 of the Trade Repositories (EU Exit) Regulations, which in turn applies section 169 of the Act. This requires the FCA to publish a statement of policy on the conduct of certain interviews in response to requests from overseas regulators. For the purposes of the
FCA 2019/XX
Securitisation Regulation, the FCA will follow the procedures described in DEPP 7.
PS19/15
Appendix 2
Financial Conduct Authority
Securitisation (Amendment) (EU Exit) Regulations 2019 and Securitisation Regulations 2018 (near final and final rules)
Appendix 2
Final rules (legal instrument)
FCA 2019/74
ENFORCEMENT (EU SECURITISATION REGULATION) (No 2) INSTRUMENT Powers exercised A. The Financial Conduct Authority (“the FCA”) makes this instrument in the exercise of and/or under:
(1) section 139A (Power of the FCA to give guidance) of the Financial Services and Markets Act 2000 (“the Act”); and (2) the following provisions in the Financial Services and Markets Act 2000 (Securitisation) Regulations 2018:
(a) regulation 9 (Statements of policy); and (b) paragraph 1 of Schedule 1 (Application of sections 66 to 70 of the Act). Commencement B. This instrument comes into force on 6 June 2019. Amendments to the Handbook
C. The Decision Procedure and Penalties manual (DEPP) is amended in accordance with
Annex A to this instrument.
Material outside the Handbook
D. The Enforcement Guide (EG) is amended in accordance with Annex B to this instrument. Citation E. This instrument may be cited as the Enforcement (EU Securitisation Regulation) (No
2) Instrument 2019.
By order of the Board
30 May 2019
FCA 2019/74
Annex A
Amendments to the Decision Procedure and Penalties manual (DEPP) In this Annex, underlining indicates new text and striking through indicates deleted text. 2 Statutory notices and the allocation of decision making … 2 Annex 1G Warning notices and decision notices under the Act and certain other enactments … UK Securitisation Regulations Description Handbook reference Decision maker … Paragraph 1 of
Schedule 1
when the FCA is proposing or deciding to take action against an individual by exercising the disciplinary powers conferred by
section 66*, to publish a
statement or, impose a financial penalty as applied by paragraph 1 of schedule 1 RDC Paragraph 4 of
Schedule 1
when the FCA is proposing or deciding to publish a statement (under section 205), or impose a financial penalty (under section 206), or suspend a permission or impose a restriction in relation to the carrying on of a regulated activity (under section 206A) as applied by paragraph 4 of
schedule 1.
RDC
…
FCA 2019/74
Annex B
Amendments to the Enforcement Guide (EG)
In this Annex, underlining indicates new text and striking through indicates deleted text.
19.38 UK Securitisation Regulations
…
19.38.4 The regulatory powers which the UK Securitisation Regulations provide to the
FCA include the power:
…
(6) to require restitution; and
(7) to impose temporary prohibitions on individuals holding management functions; and (8) to impose a suspension, condition, limitation or other restriction.
© Financial Conduct Authority 2019
12 Endeavour Square London E20 1JN
Telephone: +44 (0)20 7066 1000
Website: www.fca.org.uk
All rights reserved
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“This follows our consultation paper and policy statement, CP18/30 and PS18/25 respectively, which were based on the draft 2018 Regulations.”
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