A Dog and Pony Show?

Was the Independent Foreclosure Review simply for show?   It certainly looks that way as the government is about to sign a deal whereby the banks would pay $10 billion in fines.  $3.75 billion would go to the homeowners affected.  Since there could be as many as 4,000,000 home owners involved, it's not much per homeowner.  

The government is settling supposedly because the banks’ mandatory review of loan files was arduous and expensive, and would not yield promised relief to homeowners.

Again, the banks pay money, no one goes to jail.