DMO, DCO, and DSIO 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 liquidity an...

Summary: DMO, DCO, and DSIO 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 liquidity and possibly negative pricing.

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

n 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

2

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

vi-

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

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.

3

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

nd 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).

FR 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).

4

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

tain 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.

nitor 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.

5

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

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).

dent 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).

6

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.

* * * * * * * *

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

is a possibility.

* * * * * * * *

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