Companies Agree to Cooperate in SEC Actions
Washington, D.C., Dec. 16, 2011 — The Securities and Exchange
Commission today charged six former top executives of the Federal National
Mortgage Association (Fannie Mae) and the Federal Home Loan Mortgage Corporation
(Freddie Mac) with securities fraud, alleging they knew and approved of
misleading statements claiming the companies had minimal holdings of higher-risk
mortgage loans, including subprime loans.
Fannie Mae and Freddie Mac each entered into a Non-Prosecution Agreement with
the Commission in which each company agreed to accept responsibility for its
conduct and not dispute, contest, or contradict the contents of an agreed-upon
Statement of Facts without admitting nor denying liability. Each also agreed to
cooperate with the Commission's litigation against the former executives. In
entering into these Agreements, the Commission considered the unique
circumstances presented by the companies' current status, including the
financial support provided to the companies by the U.S. Treasury, the role of
the Federal Housing Finance Agency as conservator of each company, and the costs
that may be imposed on U.S. taxpayers.
Three former Fannie Mae executives - former Chief Executive Officer Daniel H.
Mudd, former Chief Risk Officer Enrico Dallavecchia, and former Executive Vice
President of Fannie Mae's Single Family Mortgage business, Thomas A. Lund - were
named in the SEC's complaint filed in U.S. District Court for the Southern
District of New York.
The SEC also charged three former Freddie Mac executives — former Chairman of
the Board and CEO Richard F. Syron, former Executive Vice President and Chief
Business Officer Patricia L. Cook, and former Executive Vice President for the
Single Family Guarantee business Donald J. Bisenius — in a separate complaint
filed in the same court.
"Fannie Mae and Freddie Mac executives told the world that their subprime
exposure was substantially smaller than it really was," said Robert Khuzami,
Director of the SEC's Enforcement Division. "These material misstatements
occurred during a time of acute investor interest in financial institutions'
exposure to subprime loans, and misled the market about the amount of risk on
the company's books. All individuals, regardless of their rank or position, will
be held accountable for perpetuating half-truths or misrepresentations about
matters materially important to the interest of our country's investors."
The SEC is seeking financial penalties, disgorgement of ill-gotten gains with
interest, permanent injunctive relief and officer and director bars against
Mudd, Dallavecchia, Lund, Syron, Cook, and Bisenius. Both lawsuits allege that
the former executives caused the federal mortgage firms to materially misstate
their holdings of subprime mortgage loans in periodic and other filings with the
Commission, public statements, investor calls, and media interviews. The suit
involving the Fannie Mae executives also includes similar allegations regarding
Alt-A mortgage loans. The suit against the former Fannie Mae executives alleges
they made misleading statements — or aided and abetted others — between December
2006 and August 2008. The former Freddie Mac executives are alleged to have made
misleading statements — or aided and abetted others - between March 2007 and
August 2008.
The SEC's complaint against the former Fannie Mae executives alleges that,
when Fannie Mae began reporting its exposure to subprime loans in 2007, it
broadly described the loans as those "made to borrowers with weaker credit
histories," and then reported — with the knowledge, support, and approval of
Mudd, Dallavecchia, and Lund — less than one-tenth of its loans that met that
description. Fannie Mae reported that its 2006 year-end Single Family exposure
to subprime loans was just 0.2 percent, or approximately $4.8 billion, of its
Single Family loan portfolio. Investors were not told that in calculating the
Company's reported exposure to subprime loans, Fannie Mae did not include loan
products specifically targeted by Fannie Mae towards borrowers with weaker
credit histories, including more than $43 billion of Expanded Approval, or "EA"
loans.
Fannie Mae's executives also knew and approved of the decision to underreport
Fannie Mae's Alt-A loan exposure, the SEC alleged. Fannie Mae disclosed that its
March 31, 2007 exposure to Alt-A loans was 11 percent of its portfolio of Single
Family loans. In reality, Fannie Mae's Alt-A exposure at that time was
approximately 18 percent of its Single Family loan holdings.
The misleading disclosures were made as Fannie Mae's executives were seeking
to increase the Company's market share through increased purchases of subprime
and Alt-A loans, and gave false comfort to investors about the extent of Fannie
Mae's exposure to high-risk loans, the SEC alleged.
In the complaint against the former Freddie Mac executives, the SEC alleged
that they and Freddie Mac led investors to believe that the firm used a broad
definition of subprime loans and was disclosing all of its Single-Family
subprime loan exposure. Syron and Cook reinforced the misleading perception when
they each publicly proclaimed that the Single Family business had "basically no
subprime exposure." Unbeknown to investors, as of December 31, 2006, Freddie
Mac's Single Family business was exposed to approximately $141 billion of loans
internally referred to as "subprime" or "subprime like," accounting for 10
percent of the portfolio, and grew to approximately $244 billion, or 14 percent
of the portfolio, as of June 30, 2008.
The SEC's complaint alleges that Mudd violated Section 10(b) of the
Securities Exchange Act of 1934 (the "Exchange Act") and Rules 10b-5(b) and
13(a)14(a) thereunder, and Section 17(a)(2) of the Securities Act of 1933 (the
"Securities Act"); and that Mudd aided and abetted Fannie Mae's violations of
Sections 10(b) and 13(a) of the Exchange Act and Exchange Act Rules 10b-5(b),
12b-20, 13a-1, and 13a-13 thereunder. The SEC complaint also alleges that
Dallavecchia violated Section 17(a)(2) of the Securities Act and aided and
abetted Fannie Mae's violations of Sections 10(b) and 13(a) of the Exchange Act
and Exchange Act Rules 10b-5(b), 12b-20, 13a-1, and 13a-13 thereunder. Finally,
the SEC complaint alleges that Lund aided and abetted Fannie Mae's violations of
Sections 10(b) and 13(a) of the Exchange Act and Exchange Act Rules 10b-5(b),
12b-20, 13a-1, and 13a-13 thereunder.
The SEC's complaint alleges that Syron and Cook violated Exchange Act Section
10(b) and Rule 10b-5(b) thereunder and Securities Act Section 17(a)(2); that
Syron violated Exchange Act Rule 13a-14; and that Syron, Cook and Bisenius aided
and abetted violations of Sections 10(b) and 13(a) of the Exchange Act and Rules
10b-5(b), 12b-20 and 13a-13 thereunder.
The SEC's investigation of Fannie Mae was conducted by Senior Attorneys
Natasha S. Guinan, Christina M. Marshall, Liban Jama, Mona L. Benach, and
Associate Chief Accountant, Peter Rosario, under the supervision of Assistant
Director Charles E. Cain, and Associate Director Stephen L. Cohen. Sarah Levine
and James Kidney will lead the SEC's litigation efforts.
The SEC's investigation of Freddie Mac was conducted by Senior Attorneys
Giles T. Cohen and David S. Karp and Assistant Chief Accountant Avron Elbaum of
the SEC's Division of Enforcement under the supervision of Assistant Director
Charles E. Cain and Associate Director Stephen L. Cohen. Kevin O'Rourke and
Suzanne Romajas will lead the SEC's litigation efforts.