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The FDIC is committed to expanding Americans' access to safe, secure, and affordable banking services, which is integral to the FDIC's mission of maintaining the stability of and public confidence in the U.S. financial system. The FDIC National Survey of Unbanked and Underbanked Households is one contribution to this end. Conducted biennially since 2009 partly in response to a statutory mandate, the survey is administered in partnership with the U.S. Census Bureau and collects information on bank account ownership; use of prepaid cards and nonbank online payment services; use of nonbank money orders, check cashing, and money transfer services; and use of bank and nonbank credit.

The financial disruptions due to the COVID-19 pandemic created unique opportunities and challenges for economic inclusion, some of which may be temporary, while others may be longer lasting. The importance of quickly receiving income from Economic Impact Payments or other government relief programs created a unique bankable moment, and consumers benefitted from enhanced online and mobile account opening technologies and the greater availability of safe and affordable bank accounts. This combination of factors resulted in meaningful gains in connecting households to the banking system.

Health and safety concerns regarding in-person interactions during the pandemic may have accelerated the long-term trend of increasing use of mobile and online channels to access financial products and services, such as mobile banking and online payment services. As the pandemic wanes, it will be important to carefully monitor whether the shift from in-person activity continues, stabilizes, or subsides.

The pandemic highlighted the need for consumers to quickly respond to economic shocks, particularly to ensure that they were able to receive and access relief funds and other benefits. Community organizations, policymakers, and bankers raised awareness about Economic Impact Payments and connected consumers to bank accounts. For example, the FDIC launched a national #GetBanked consumer education campaign and collaborated with the U.S. Department of the Treasury to help consumers connect to banks that offered online opening of safe and affordable accounts so that they could establish a banking relationship and receive stimulus payments more quickly and securely.

Economic inclusion efforts should continue to focus on connecting consumers with safe and affordable accounts at a variety of bankable moments, for example, with receipt of new employment income, tax refunds, and government benefits and transfers. While initiatives to bank consumers at opportune moments have existed for some time (e.g., Bank On, Volunteer Income Tax Assistance site banking efforts), more options are available today than in the past to connect consumers with safe and affordable bank accounts. As of September 2022, over 250 banks and credit unions offer an account that meets Bank On National Account Standards. In addition, mobile and online account opening options are more accessible. Restrictions on in-person activities during the pandemic led many banks to enhance their digital account opening technologies to make it easier and quicker for consumers to open accounts remotely through online and mobile banking. At the same time, consumer comfort and familiarity with financial technology increased as many consumers used online and mobile methods for shopping or handling their finances. Public awareness campaigns timed with bankable moments highlighting account opening options could be helpful for bringing consumers into banking.

In addition to expanding access to banking, maintaining sustainable banking relations is a key economic inclusion consideration. The pandemic tested the sustainability of banking relationships when labor market disruptions reduced or curtailed many household income streams. In 2021, about one in five recently unbanked households (21.1 percent) reported that losing or quitting a job, being furloughed, having reduced hours, or having a significant loss of income contributed to closing a bank account in the prior 15 months. As sizeable as this share is, it is much lower than results reported in a past FDIC survey. Although not directly comparable, in 2013, one-third (33.9 percent) of recently unbanked households experienced a significant income loss or a job loss that they said contributed to the household becoming unbanked. Government aid and financial system flexibilities during the pandemic likely played a role in mitigating consumer financial distress, particularly in helping consumers meet their credit obligations. But it would be beneficial to identify lessons learned regarding communication strategies, staff training, or bank policies that were particularly effective in helping consumers and financial institutions navigate financial disruptions. For example, at the start of the pandemic, regulators encouraged financial institutions to work with consumers, especially LMI consumers, and to consider measures to reduce the financial impact of the pandemic, such as waiving early withdrawal penalties for time deposits or ATM fees. It is important to explore whether these or other efforts were effective and could be continued to help LMI consumers cope with short-term financial shocks without becoming unbanked.

Decreasing use of these nonbank services, especially through a period of declining unbanked rates, could imply that a growing number of households is fulfilling financial services needs within the banking system and benefiting from the consumer protections and opportunities that the system provides. However, to understand whether the decline in observed use of nonbank financial services correlates with greater inclusion in banking, more information is needed about whether and how households have replaced nonbank products and services like money orders and check cashing. It is also important to think about household attitudes, characteristics, and usage patterns when assessing how and why financial habits are changing. For example, while it may be reasonable to consider that unbanked households that were using nonbank services but were very interested in having a bank account may have curtailed their use of nonbanks in favor of banks, a significant portion of unbanked households do not trust banks, and it is less likely that these households are shifting from nonbanks to banks.

On the supply side, the rapidly changing marketplace has led to a proliferation of new nonbank financial products, and some households may be turning to these new products as they become available. Providers like nonbank fintechs and online payment services offer new ways to conduct core financial transactions such as receiving income (e.g., new ways to cash checks virtually), while emerging credit options such as buy now, pay later products provide new alternatives to existing credit offerings inside and outside of the banking system. To the extent that households have replaced existing nonbank financial services with new nonbank products, there may be consumer protection concerns. Also, banks may need to better target their economic inclusion strategies to align with changes in consumer behavior.

Learning more about how households use new and existing bank and nonbank services will help clarify the true extent to which consumers are transacting within or outside of the banking system. As the diversity of options available in the marketplace grows, financial services are becoming more disaggregated as banked and unbanked households alike may increasingly turn to separate providers to meet different needs. As households combine bank and nonbank products in new ways, banks may need to work harder to distinguish themselves from nonbank providers and demonstrate the unique value and protections they offer consumers. The research community, including the FDIC National Survey of Unbanked and Underbanked Households, should strive to ensure adequate coverage of emerging products and to better understand how consumers are evaluating their options. Knowing more about the full range of services that households are using and the reasons motivating their choices will also allow economic inclusion stakeholders to better gauge the status of their efforts to develop, promote, and connect consumers to appealing banking products and can inform ways to evolve this work going forward.

Banked households appear to use nonbank online payment services in conjunction with banking products by linking them to credit cards or bank accounts, and they use them for a limited set of transactions. Most banked households that use nonbank online payment services use them to make purchases online and to send money to or receive money from family or friends. Banked households do not commonly use nonbank online payment services for core financial transactions; fewer than one in five (18.7 percent) used them to receive income, and 27.2 percent used them to pay bills. These findings suggest that banked households might be disaggregating their use of financial services and that they are turning to other providers to meet some needs while continuing to rely on bank products for core transactions.

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