Court filing
Exhibit 111 — In re Bank of America California Unemployment Benefits Litigation (Dkt. 350-112, S.D. Cal. No. 3:21-md-02992)
Filed October 24, 2024 in In re Bank of America California Unemployment Benefits Litigation; one of 1415 filings from this case.
Record facts
| Court | U.S. District Court for the Southern District of California |
|---|---|
| Filed | 2024-10-24 |
U.S. District Court for the Southern District of California · No. 3:21-md-02992-GPC-MSB · Doc. 350-112 · 2024-10-24 · Docket on CourtListener
Full text
EXHIBIT 111
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Comptroller’s Handbook
Consumer Compliance (CC)
CC-CMS
Compliance Management
Systems
Version 1.0, June 2018
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CMS Components
CMS is the method by which a bank manages consumer compliance risk, supports
compliance with consumer protection-related laws and regulations, and prevents consumer
harm. The complexity of the compliance risk environment presents challenges for banks. The
volume and complexity of consumer protection-related laws and regulations coupled with
changing technologies and earnings pressures increase the importance of a bank’s CMS.
Each bank should develop and maintain an effective CMS that is appropriate for the size,
complexity, and risk profile of its operations. The CMS should consist of board and
management oversight and a compliance program that includes all applicable consumer
compliance-related laws and regulations.
The consumer compliance rating takes into account the effectiveness of the bank’s CMS and
factors relating to violations of law and consumer harm. Refer to the “Violations of Law and
Consumer Harm” section and appendix A of this booklet for additional information.
Board and Management Oversight
Board and management oversight should be commensurate with the bank’s size, complexity,
and risk profile. Oversight should factor in all applicable consumer protection-related laws
and regulations and include consumer compliance expectations for third-party relationships.
It is important for the board and management to understand the potential consequences of
violations of laws and regulations that may result in customer reimbursements, financial
losses, reputation risks, and legal risks, including enforcement actions (including CMPs). In
relation to their respective roles, board and management oversight should include the
following:
• Oversight of and a commitment to the bank’s CMS, including oversight of third parties.
• Effective change management processes, which include responding in a timely and
satisfactory manner to any change, internal or external, to the bank.
• Comprehension, identification, and management of risks arising from the bank’s
products, services, or activities.
• Self-identification of consumer compliance issues and timely correction of such issues.
Oversight and Commitment
The board and management should demonstrate a commitment to and oversight of the bank’s
CMS.12 The board should oversee, and management should implement, a consumer
compliance program with effective resources, including
12 Refer to the “Corporate and Risk Governance” booklet of the Comptroller’s Handbook for additional
information regarding the roles of the board and management in establishing an appropriate compliance culture
that incorporates all applicable laws and regulations, including consumer protection-related laws and
regulations.
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• systems, capital, and human resources commensurate with the bank’s size, complexity,
and risk profile.
• knowledgeable staff who are appropriately trained, empowered, and held accountable for
compliance with consumer protection-related laws and regulations.
Board of Directors
The board should create a culture that places a priority on compliance and holds management
accountable. The board plays a pivotal role in the effective governance of the bank, including
oversight of the bank’s CMS. The board should oversee management, provide organizational
leadership, and establish core corporate values. The board should oversee management’s
implementation of the bank’s CMS and hold management accountable for implementing a
CMS that is consistent with the bank’s strategic direction, risk culture, and risk appetite.
The board should receive sufficient consumer compliance-related information including
management information systems (MIS) reports, risk assessments, and monitoring and
independent audit reports to assess the effectiveness of the bank’s CMS and, when
appropriate, provide credible challenge to management. Applicable board or board
committee minutes should reflect the board’s or committee’s receipt and deliberation of
information related to the bank’s consumer compliance risk management practices and the
effectiveness of those practices to manage consumer compliance risk, support compliance
with consumer protection-related laws and regulations, and prevent consumer harm. The
board should understand its roles and responsibilities related to consumer compliance, and
periodically assess directors’ consumer compliance skills and competencies relative to the
bank’s size, complexity, and risk profile. Management can support the board by instituting an
ongoing education and training program that includes consumer compliance to keep the
board informed and current on general industry trends and regulatory developments,
particularly regarding issues that pertain to the bank.
Bank Management
The board generally delegates authority to management for directing and overseeing day-to-
day operations of the bank, including developing and implementing the bank’s CMS
consistent with the board’s strategic objectives and risk appetite. Management should
monitor the performance of the compliance program, including
• third-party risk management processes that include due diligence and ongoing monitoring
of third parties (i.e., third-party risk management processes).
• change management.
• comprehension, identification, and management of risk.
• self-identification of compliance risk management deficiencies and corrective action.
Management may use committees to facilitate oversight of day-to-day banking activities,
including consumer compliance-related activities. Management should determine which
committees are appropriate for the bank and how formal each committee’s structure should
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be. Examples of consumer compliance-related committees may include compliance risk
management and fair banking.
Management also should establish and clearly communicate compliance-related roles and
responsibilities. Regardless of the form of the compliance function, management should
provide it with appropriate resources, including systems, capital, and human resources. Many
banks establish a separate compliance function headed by a compliance officer. In such
banks, the compliance officer should have the authority and independence to facilitate
compliance throughout the bank and sufficient time and resources, including staff, to execute
assigned duties. The compliance officer should have the appropriate skills and knowledge of
the consumer protection-related laws and regulations applicable to the bank. Compliance
officers should oversee the compliance training for all bank employees. For banks with
limited staff or overlapping compliance and other responsibilities, training and development
is particularly important to conduct continuous and consistent operations. Additionally, the
compliance officer should be afforded opportunities for external training to maintain or
refresh his or her subject matter expertise pertinent to overseeing the bank’s compliance
program.
Third-Party Risk Management
There can be certain benefits to banks engaging in relationships with third parties, including
gaining operational efficiencies or an ability to deliver additional products and services.
Third-party relationships may expose the bank to risks, if not managed effectively. While
management may make the business decision to outsource some or all of the operational
aspects of a product or service, the bank cannot outsource the responsibility for complying
with consumer protection-related laws and regulations or managing the consumer compliance
risks associated with products or services offered by the third party. Management should
implement third-party risk management processes commensurate with the level of risk and
complexity presented by the third-party relationships. The bank’s third-party risk
management process should include the following specific to consumer compliance:
• Due diligence and ongoing monitoring of third parties to assess compliance with
consumer protection-related laws and regulations.
• Oversight of third parties’ consumer compliance-related policies, procedures, internal
controls, and training.
Refer to OCC Bulletin 2013-29, “Third-Party Relationships: Risk Management Guidance,”
OCC Bulletin 2017-21, “Third-Party Relationships: Frequently Asked Questions to
Supplement OCC Bulletin 2013-29,” and OCC Bulletin 2017-7, “Third-Party Relationships:
Supplemental Examination Procedures,” for additional information regarding third-party risk
management.
Change Management
Specific to consumer compliance, management should anticipate and respond in a timely
manner to changes in applicable consumer protection-related laws and regulations, market
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conditions, and products and services offered by evaluating the change and implementing
responses across affected lines of business. Management should have a process to identify
laws and regulations applicable to the bank’s activities and stay abreast of evolving
regulatory requirements. The formality of the change management process should be
commensurate with the bank’s size, complexity, and risk profile.
Management should conduct due diligence in advance of engaging in new, modified, or
expanded products or services, consider the entire lifecycle of a product or service in
implementing change, and review the change after implementation to determine that actions
taken have achieved planned results. The compliance function should be involved in the due
diligence and monitoring of new, modified, or expanded products or services. Refer to OCC
Bulletin 2017-43, “New, Modified, or Expanded Bank Products and Services: Risk
Management Principles,” for additional information.
Comprehension, Identification, and Management of Risk
Management should comprehend, identify, and manage consumer compliance risks,
including existing and emerging risks to the bank’s products, services, and other activities.
The sophistication of risk management should be proportionate to the risks present and the
bank’s size and complexity. Regardless of the bank’s size and complexity, sound
management of consumer compliance risk should do the following:
Identify risk: The board and management should identify existing risks and risks that may
arise from new business initiatives, including risks that originate in nonbank subsidiaries,
affiliates, and third-party relationships and those that arise from external market forces or
regulatory or statutory changes. Risk identification should be a continual process and should
occur at the transaction, portfolio, and enterprise levels. For larger, more complex banks, the
board and management also should identify interdependencies and correlations across
portfolios and lines of business that may amplify risk exposures. Proper risk identification is
important for banks to determine that risks are addressed appropriately.
Measure risk: Accurate and timely measurement of risks is important to effective risk
management systems. A bank that does not have a risk measurement system has limited
ability to control or monitor risk levels. Further, the bank should have more sophisticated
measurement tools as the complexity of the risk increases. Management should periodically
conduct tests to verify that the bank’s measurement tools are accurate. Sound risk
measurement systems assess the risks at the individual transaction, portfolio, and enterprise
levels. Larger, more complex companies should pay particular attention to assessing the
effect of increased transaction volumes across all risk categories.
Monitor risk: Management should monitor risk levels to confirm timely review of risk
positions and exceptions, including throughout business combination and reorganization
activities. Management-developed and -implemented monitoring reports should be timely
and accurate and should be distributed to appropriate individuals, including the board, to
initiate action, when appropriate. For larger, more complex banks, monitoring is important to
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confirm that management’s decisions are implemented for all geographies, products and
services, and legal entities. Well-designed monitoring systems allow the board to hold
management accountable for operating within established risk appetites.
Control risk: The board should determine that risk limits are communicated through
policies, standards, and procedures that define responsibility and authority. These limits
should serve as a means to control exposures to the various risks associated with the bank’s
activities. The limits should be tools that, based on board approval, can be adjusted when
conditions or risk appetites change. Management should have a process to document
adherence to established limits, and to authorize, document, and report to the board
exceptions to risk limits. Large, diversified banks should have strong risk controls covering
all geographies, products and services, and legal entities to prevent undue exposure from
concentrations of risk.
Risk Assessment
The bank’s CMS should include a consumer compliance risk assessment process
commensurate with the size, complexity, and risk profile of the bank. Completing risk
assessments helps management identify current and emerging consumer compliance risks in
order to prevent, self-identify, and address potential consumer compliance issues. A well-
designed risk assessment process should be supported by appropriate methodology that
includes quantitative and qualitative data and evaluates risk across all products, services, and
lines of business. An effective risk assessment process helps the board and management
address emerging risks at an early stage and allows them to proactively develop and
implement appropriate strategies to mitigate the risks before the risks have an adverse effect
on the bank’s condition or risk profile.
Management should perform or update the bank’s consumer compliance risk assessment
periodically, based on the bank’s size, complexity, and risk profile. The sophistication of the
risk assessment process should be commensurate with the bank’s size, complexity, and risk
profile. In less complex banks, it may be appropriate to have a single compliance risk
assessment evaluating all products, services, and business lines. In more complex banks, the
risk assessment process may involve completing multiple compliance risk assessments, with
results of individual risk assessments aggregated into an overall compliance risk assessment
that considers and evaluates consumer compliance risk at the enterprise level. While an
effective risk assessment process may look different across banks, each risk assessment
should evaluate and make determinations regarding the following:13
• Inherent risk, which is the risk that an activity would pose if no controls or mitigating
factors were in place.
• Residual risk, which is the level of risk after controls are taken into account.
13 Refer to the “Corporate and Risk Governance” booklet of the Comptroller’s Handbook for more information
regarding risk assessments.
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Self-Identification and Corrective Action
Management should identify, respond to, and remediate violations of laws or regulations and
deficient practices in a timely manner. Moreover, self-identification and prompt correction of
violations and deficient practices may reflect strengths in the bank’s CMS and could indicate
management’s and the board’s commitment to address responsibly underlying consumer
compliance risk. Appropriate corrective action should remedy harmed parties, correct
programmatic weaknesses related to the violation, and prevent violations from occurring in
the future.
Issues Management
Issues management refers to processes for tracking, escalating, and resolving issues (e.g.,
deficient practices, violations, or other weaknesses) identified across the bank. Traditionally,
internal audit has been responsible for maintaining formal processes to track and follow up
on issues identified through audits and regulatory examinations. Issues can also surface from
other sources, however, including quality control and quality assurance processes,
monitoring and testing by the compliance function, control gaps identified through the risk
assessment process, management’s self-identification of issues, and adverse trends identified
from monitoring of consumer complaints. Management should design and implement an
issues management process that incorporates all sources of risk and issue identification. The
issues management process should include identification of root causes of issues and
determining whether issues are related to a specific product, service, or business line or if
issues are systemic. The board should be apprised of material issues and resolution strategies,
and hold management accountable for correcting issues and validating corrective actions.
Consumer Compliance Program
An effective consumer compliance program should include the following:
• Policies and procedures that are appropriate to the complexity and risk in the bank’s
products, services, and activities, including an appropriate third-party risk
management process.
• Consumer compliance training that is current and tailored to risk and staff
responsibilities.
• Monitoring and, if applicable, audit that encompass consumer compliance risks
throughout the bank.
• A responsive and effective consumer complaint resolution process.
Policies and Procedures
Consumer compliance policies and procedures, including those for the bank’s third-party risk
management process, should provide standards for managing consumer compliance risk in
the bank’s products, services, and activities.
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Policies are statements of actions that the bank adopts to pursue certain objectives. Policies
guide decisions and often set standards (on risk limits, for example) and should be consistent
with the bank’s underlying mission, strategy, risk appetite, and core values.
The scope and detail of those policies should vary depending on the bank’s size, complexity,
and risk profile. A smaller, noncomplex bank with management that is heavily involved in
the bank’s day-to-day operations should have basic policies addressing the significant areas
of consumer compliance risk. Larger, more complex banks, where senior management relies
on a widely dispersed staff to manage consumer compliance risks associated with complex or
varied products, services, and activities, should have more detailed policies. Appropriate
policies should be in place and approved by the board before the bank engages in any new or
significantly changed consumer compliance-related activities.
Procedures define how the bank is to carry out its policies. Management should consider the
complexity and risk associated with products, services, and activities when determining the
level of formality needed for consumer compliance-related procedures. Procedures should be
consistent with related bank policies.
Consumer Compliance Training
Consumer compliance training should be timely, and specifically tailored to employees’ job
functions and the bank’s products, services, and level of risks. Training should span the
entire organization, including staff responsible for product development, marketing, and
customer service. Banks should train business line employees on consumer compliance
requirements and bank procedures. The compliance and audit functions should have access to
more advanced or specialized training, including emerging risks, trends, and industry
developments, and training on compliance-related policies and procedures. Training for the
board and management is generally focused on the their individual responsibilities to oversee
and govern the bank’s CMS.
Standards for the frequency, method (e.g., formal, on-the-job, external), and documentation
of training should be addressed in policies and procedures. For example, some laws impose
mandatory training requirements. Periodic training increases the likelihood of adherence to
the bank’s policies and procedures and to changing legal requirements. Records, including
training content, attendees, and completion dates, should be maintained to demonstrate the
effectiveness of the bank’s training program. The method and documentation of training may
vary depending on the size of the bank or department, established time frames for training,
and the significance and complexity of the subject matter.
The consumer compliance training program should be updated in advance of the introduction
of new products, services, activities, or the effective date of new consumer protection-related
laws and regulations to ensure that all staff are aware of compliance requirements before
such changes occur.
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Monitoring and Audit
Monitoring of consumer compliance risk is a key aspect of an effective CMS that involves
both the evaluation and reporting of risks. Consumer compliance risk identification and
assessment activities, such as risk control self-assessments, quality assurance, and quality
controls, are integral to monitoring by providing ongoing or periodic evaluation of the bank’s
consumer compliance risk environment. To facilitate monitoring of consumer compliance
risk, the bank’s CMS should include bank-wide monitoring inclusive of the bank’s products,
services, and activities.
Management’s assessment of consumer compliance risk associated with the bank’s products,
services, activities, and processes may assist the bank in determining the extent, depth,
frequency, and focal points of independent consumer compliance audits. For instance,
monitoring may be appropriate for products, services, activities, or processes that are less
complex or demonstrate less risk. The board may require an independent consumer
compliance audit to determine the bank’s compliance with consumer protection-related laws
and regulations, particularly for more complex, higher-risk products, services, activities, or
processes. Additionally, a periodic and independent audit of the bank’s CMS should provide
the board with information to determine the effectiveness of the bank’s CMS.
Monitoring and audit activities should be timely and should identify and measure material
consumer compliance risk throughout the bank. Monitoring and audit of the bank’s
compliance program should be proactive in identifying procedural or training weaknesses to
preclude consumer protection-related violations. Compliance program modifications made to
address identified weaknesses should be implemented expeditiously to minimize consumer
compliance risk.
Monitoring
Effective monitoring and testing include quality control and quality assurance14 and identify
violations of consumer protection-related laws or regulations or non-compliance with bank
policies and procedures. Effective monitoring also provides timely identification of CMS
deficiencies or weaknesses and can limit the size and scope of consumer harm by providing
for timely corrective action.
Monitoring is generally more frequent and less formal than the independent review
performed by the audit function. The plan and schedule for monitoring activities, however,
should be risk-based, documented, and updated at least annually. Management, in
consultation with the board, should determine the frequency, scope, and formality of
monitoring and testing. Depending on the size, complexity, and risk of the bank, staff
responsible for monitoring and testing may have less independence than the audit function’s
staff. Management should clearly outline roles and responsibilities so that monitoring by the
various groups is complementary and not duplicative.
14 Refer to the “Corporate and Risk Governance” booklet of the Comptroller’s Handbook for additional
information regarding quality control and quality assurance.
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Transaction testing is an important component of monitoring. A bank’s sampling
methodology should incorporate appropriate sampling techniques. Transaction testing may
be conducted by compliance staff or within business lines. Other forms of monitoring may
include employee interviews, policy and procedure review, assessing training effectiveness,
and comparison of actual practices with disclosures provided in connection with transactions.
The bank should complete root cause analyses to determine whether identified violations of
law or regulation or failures to follow established policies and procedures are isolated events
or systemic. Identified issues should be escalated and tracked in accordance with the bank’s
issues management policies and procedures. Additionally, the root cause determination
should identify whether existing controls should be enhanced or if new controls should be
implemented.
Audit
The bank’s internal audit system15 should include risk-based independent reviews of the
bank’s CMS to provide the board and management reasonable assurance of the bank’s
consumer compliance-related risk management. Inclusion of CMS in the audit program
substantially lessens the risk of a bank failing to detect potentially serious problems, such as
non-compliance with consumer protection-related laws or regulations. The bank’s risk-based
internal audit coverage over CMS should include the following:
• Independent and qualified auditors who are knowledgeable of consumer protection-
related laws and regulations and can assess the appropriateness of the bank’s CMS.
• Testing of internal controls to identify
˗
inaccurate, incomplete, or unauthorized transactions.
˗
violations of consumer protection-related laws or regulations.
˗
deviations from the bank’s consumer compliance-related policies and procedures.
˗
thematic consumer compliance control issues, including the root cause, across
business activities or auditable entities.
• Evaluating the adequacy of established consumer compliance-related policies and
procedures and identifying non-compliance with the bank’s consumer compliance risk
management processes.
• Reviewing and validating management actions to address material consumer compliance-
related weaknesses.
The bank’s audit risk assessment process should include identification of consumer
compliance-related auditable entities, including third parties. The bank may perform a
separate audit to evaluate the overall effectiveness of the bank’s CMS, while audit coverage
for consumer protection-related laws and regulations may encompass several individual
audits or continuous auditing activities.
15 Refer to 12 CFR 30, appendix A, II.A, “Operational and Managerial Standards,” and the “Internal and
External Audits” booklet of the Comptroller’s Handbook for information regarding internal audit systems,
including compliance audit systems.
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The bank’s process to track, monitor, report, and follow up on audit issues should include
consumer compliance-related audit issues.
Consumer Complaint Resolution Process
Consumer complaints can be an indicator of potential risk management weaknesses or other
deficiencies, such as violations of laws or regulations. Complaints can reveal a weakness in a
particular bank product, service, function, or department, or can identify opportunities to
enhance customers’ experience and understanding of bank products or services. Complaints
can help banks assess services performed by third parties. While the absence of complaints is
not conclusive of a strong CMS, the presence of complaints, especially multiple complaints
regarding the same or similar issue, may indicate a weakness in the bank’s CMS.
Banks should have a process for identifying, managing, and analyzing complaints. The
formality of the process should be commensurate with the bank’s size, complexity, and risk
profile. An effective complaint resolution process should generally include the following:
• How the bank defines a complaint and requirements for documentation of complaints.
With changing technology, complaints can come in many forms or through various
channels: letters, phone calls, in person, other regulators, third-party service providers,
emails, and even social media. Bank policies and procedures should address how these
various types of complaints are documented and tracked.
• Responsibility and accountability for identifying, addressing, and escalating complaints.
• Tracking of complaints and bank responses or actions. A centralized tracking process can
improve the identification of trends or patterns.
• Analysis of complaints to determine if a trend or pattern exists, and identifying the root
cause of significant trends.
• Reporting complaint data and trends to the board and management.
Procedures should identify who is responsible for addressing complaints and detail the
escalation process, including an alternative process for complaints involving the employee(s)
tasked in the standard escalation process. Analysis of complaint data should be reported to
the board and management to
• identify areas of concern relating to compliance management and consumer protection;
and
• enable the bank to take proactive steps to mitigate risk of violations, consumer harm,
regulatory actions, and legal action.
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Violations of Law and Consumer Harm
A violation of law or regulation is an act (or failure to act) that deviates from, or fails to
comply with, a statutory or regulatory requirement. Violations (or lack of violations) alone
are not conclusive to determine the effectiveness of a bank’s CMS. Examiners should
consider the nature, extent, severity, and root cause of violations when assessing the bank’s
CMS. Also, a bank’s CMS can be weak when no violations are identified, if one or more
components are absent or ineffective.
Violations often result from deficient practices. The existence of violations can be indicative
of weaknesses in the bank’s CMS. Violations that result from deficiencies in component(s) of
the bank’s CMS may be indicative of weak or lax board oversight or lack of management
involvement in day-to-day operations of the CMS.
The bank’s CMS should include processes for timely self-identification and appropriate
resolution of violations. Timely self-identification and correction may support a conclusion
that monitoring and compliance audit activities are being carried out effectively.
Refer to the “Bank Supervision Process” booklet of the Comptroller’s Handbook for
additional information regarding the OCC’s policies and procedures regarding violations of
laws and regulations.
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Examination Procedures
This booklet contains objectives and expanded procedures for assessing the effectiveness of a
bank’s CMS in relation to consumer compliance risk management. Examiners decide which
of these objectives and procedures are relevant to the scope of the examination during
examination planning or after drawing conclusions during the compliance core assessment as
outlined in the “Community Bank Supervision,” “Federal Branches and Agencies
Supervision,” and “Large Bank Supervision” booklets of the Comptroller’s Handbook.
Scope
These procedures are designed to help examiners tailor the examination to each bank and
determine the scope of the CMS examination. This determination should consider work
performed by internal and external auditors and other independent risk control functions and
by other examiners on related areas. Examiners need to perform only those objectives and
examination procedures that are relevant to the scope of the examination as determined by
the following objective.
Objective: To determine the scope of the CMS examination and identify examination objectives
and activities necessary to meet the needs of the supervisory strategy for the bank.
1. Review, as applicable, the following sources of information and reports, and note any
previously identified consumer compliance deficiencies related to CMS that require
follow-up:
• Supervisory strategy.
• Examination scope memorandum.
• The OCC’s supervisory information system.
• Previous reports of examination, supervisory letters, and work papers.
• Consumer compliance-related supervisory information obtained from other regulatory
agencies.
• Internal and external audit reports and work papers.
• Bank management’s responses to previous reports of examinations, supervisory
letters, and audit reports.
• Customer complaint and litigation data, including data from the OCC CAG, the
BCFP, and the bank. Coordinate with the examiner responsible for completing the
compliance RAS and core assessment to avoid duplicating complaint data review.
• Whistleblower referrals received by the OCC or internally within the bank.
Coordinate with the examiner-in-charge (EIC), as the EIC may already possess this
information.
2. Obtain and review consumer compliance-related policies, procedures, and reports the
board and bank management use to evaluate the effectiveness of the bank’s CMS.
Examiners should consider
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