To be a cartel requires explicit agreement, not tacit agreement. The banks are just working within prevailing market constraints. They don't have to conspire with their competitors to know that those competitors are suffering the same sort of losses as themselves, and need to keep margins high. This is the consequence of our governments declaration that the banks were "of systemic importance". If you know you are of systemic importance, you don't have to worry about minor niggles like competition. At the moment the banks also don't have to fear any foreign competition stepping in to eat their lunch.