[Federal Register Volume 63, Number 151 (Thursday, August 6, 1998)]
[Proposed Rules]
[Pages 41976-41978]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-20952]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 63, No. 151 / Thursday, August 6, 1998 /
Proposed Rules
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NATIONAL CREDIT UNION ADMINISTRATION
12 CFR Part 701
Organization and Operations of Federal Credit Unions
AGENCY: National Credit Union Administration (NCUA).
ACTION: Notice of proposed rulemaking and request for comment.
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SUMMARY: The proposed rule clarifies certain provisions in NCUA's
regulation that sets forth the requirements for the purchase, sale and
pledge of eligible obligations. Currently, the regulation provides that
a federal credit union (FCU) may purchase real estate loans from any
source if it is granting real estate loans on an ongoing basis and the
purchase will facilitate the packaging of a pool of loans for sale on
the secondary market. The proposal clarifies that a pool must include a
substantial portion of the FCU's own loans and must be sold promptly.
Further, the proposed rule explains when the purchase of a member's
loan is not the purchase of an eligible obligation, but rather the
making of a direct loan.
DATES: Comments must be received by October 5, 1998.
ADDRESSES: Comments should be directed to Becky Baker, Secretary of the
Board. Mail or hand-deliver comments to: National Credit Union
Administration, 1775 Duke Street, Alexandria, Virginia 22314-3428. Fax
comments to (703) 518-6319. E-mail comments to boardmail@ncua.gov.
Please send comments by one method only.
FOR FURTHER INFORMATION CONTACT: Mary F. Rupp, Staff Attorney, Office
of General Counsel, National Credit Union Administration, 1775 Duke
Street, Alexandria, Virginia 22314-3428 or telephone: (703) 518-6553.
SUPPLEMENTARY INFORMATION:
Background
On May 3, 1979, the NCUA Board adopted a final rule that allowed an
FCU to purchase real estate loans from any source if it is granting
real estate loans on an ongoing basis and the purchase will facilitate
the packaging of a pool of loans to be sold on the secondary market. 44
FR 27068 (May 9, 1979). The rule was based on three sections of the
Federal Credit Union Act (the Act): Secs. 107(5)(A)(i), 107(13) and
107(15). Section 107(13) authorizes an FCU to purchase, sell, pledge,
discount, or otherwise receive or dispose of in whole or in part, any
eligible obligations of its members. The proposed rule explained that,
although on its face Sec. 107(13) does not authorize the purchase of
nonmember real estate loans, ``[c]onsidering the Congressional intent
to allow credit unions to take advantage of secondary mortgage market
facilities, the Administration does not believe that Congress intended
107(13) to be an express prohibition on such purchases provided they
are authorized by other sections of the Act.'' 44 FR 60, 61 (January 2,
1979). The Board found this authority in the incidental powers clause,
Sec. 107(15), and the long term real estate lending power,
Sec. 107(5)(A)(i) of the Act. The Board believed that an FCU's power to
purchase nonmember real estate loans was incident to its power to make
long term real estate loans, because ``[i]n order to operate a
successful real estate program an FCU must have access to the secondary
market. This can best be done by pooling loans.'' 44 FR at 61. The
Board recognized that, for an FCU to pool loans to sell in the
secondary market, it would sometimes need to purchase nonmember loans
to complete its pool. The proposed rule restricted the purchase of
nonmember loans to the loans of other credit unions because the Board
was mindful of the ``restrictions placed on real estate lending by
Congress.'' 44 FR at 61. Although the final rule removed the
restriction that the nonmember loans be purchased from credit unions,
the Board remained concerned that this incidental power not be
interpreted too broadly and that the focus remain on making loans to
members.
The Board balanced ``the need for efficient access to the secondary
market against Congressional intent in restricting the real estate
loans'' of FCUs. 44 FR at 22070. The preamble to the final rule stated
that the FCU's ``board of directors must have adopted a policy of
granting long term real estate loans'' and must be granting them ``on
an on-going basis''; an FCU ``must include a substantial portion of its
own loans in the pool''; once a particular pool is sold, an FCU must
``grant more loans before a second pool can be assembled''; and
``Federal credit unions will be expected to sell or pledge obligations
purchased to package a pool of loans promptly. Arrangements to dispose
of such loans should generally be made in advance of their purchase by
obtaining a commitment from a buyer to purchase the pool of loans
before the pool is actually assembled.'' 44 FR at 27070.
Although the preamble to the final rule discusses the requirements
that a pool must include a substantial portion of the credit union's
own loans and must be sold promptly, questions on these points have
arisen from time to time. NCUA has responded, through legal opinion
letters and provisions in the Accounting Manual for Credit Unions, that
FCUs must meet these conditions. Accounting Manual for Federal Credit
Unions, Sec. 6030.4. The Board believes it will be helpful to FCUs to
clarify these existing requirements by having them set out in the
regulation, itself. FCUs and persons involved in advising them often
review regulations pertaining to particular activities and, with this
amendment, it will be easier for FCUs to be informed about the
requirements for the purchase of eligible obligations without
consulting other sources for guidance.
The Act and NCUA's regulations limit the aggregate unpaid balance
of eligible obligations purchased to 5% of the unimpaired capital and
surplus of the purchaser. 12 U.S.C. 1757(13) and 12 CFR 701.23(b)(3).
The current regulation specifically exempts from the 5% limitation
student and real estate loans purchased under paragraphs (b)(1)(iii)
and (iv) and eligible obligations purchased under paragraph (b)(1)(i)
that are refinanced by the purchasing credit union so that they are
loans it is empowered to grant. 12 CFR 701.23(b)(3). There has been
some confusion as to whether FCUs participating in indirect lending and
leasing must account for these as eligible obligations subject to the
5% limitation or if they may treat them as loans.
[[Page 41977]]
General Counsel opinion letters have stated that indirect lending
and indirect leasing arrangements may be treated as loans if certain
conditions are met. The proposed rule lists the conditions, so that
FCUs can determine if a transaction qualifies as a loan or the purchase
of an eligible obligation.
Proposal
The Board proposes to amend Sec. 701.23(b)(1)(iv) by clarifying
that a pool of loans, as used in that subsection, must include a
substantial portion of the FCU's own loans and must be sold promptly.
This clarification mirrors what is currently stated in the Accounting
Manual. Accounting Manual for Federal Credit Unions, Sec. 6030.4. To
provide a more concrete measure for compliance, the Board has
considered substituting specific numbers to measure what is meant by
``substantial'' and ``promptly'' in the proposed rule. Agency staff
with expertise in the secondary market has suggested that, in order for
an FCU's pool of loans to be considered to contain a ``substantial
portion of its own loans,'' a reasonable measure would be at least 75%.
Staff believes this figure represents current practice amongst FCUs
participating in the secondary market. FCUs participating in the
secondary market normally only need a small percentage of nonmember
loans to complete the pool. Further, because FCUs do not have the
express statutory authority to purchase nonmember loans, the Board
continues to interpret this provision narrowly. It should only be used
by an FCU that is granting member real estate loans on an ongoing
basis, pooling the loans and selling them on the secondary market, as a
mechanism to complete a pool. It should not be a mechanism for FCUs to
circumvent the lending restrictions on loans to nonmembers.
Regarding the period that FCUs can hold the pool of loans, FCUs
will be expected to sell them ``promptly'' because they will be
purchasing loans of nonmembers, loans they could not grant. The 1979
preamble states that ``[a]rrangements should generally be made in
advance of their purchase by obtaining a commitment from a buyer to
purchase the pool of loans before the pool is actually assembled.'' 44
FR at 27070. Agency staff has suggested that 120 days is adequate time
given the commitment period from purchasers in the secondary market.
Although specific numbers provide a more definitive measure, they
remove flexibility which may be useful in certain circumstances. The
Board is interested in receiving comments on whether specific numbers
should be used and, if so, what numbers are reasonable.
The Board proposes amending Sec. 701.23(b)(3) by reorganizing it so
that the current exceptions to the 5% limit are listed in separate
subsections and the indirect lending and leasing exception is added to
the list. The new provision sets forth the conditions for classifying
an indirect lending or leasing arrangement as a loan. First, the FCU
must make the final underwriting decision. This means that the FCU must
actually review the application and determine that the transaction
conforms to its lending or leasing policies. Second, the sales or lease
contract must be assigned to the FCU very soon after it is signed by
the member and the dealer or leasing company. In some programs, the
assignment will occur immediately. In others, the assignment will occur
the next business day. The longer the time between the formation of the
contract and its assignment, the more likely the program will be viewed
as involving the purchase of an eligible obligation rather than the
making of a loan. The NCUA Board is interested in receiving comment on
whether a specific number of days should be substituted for ``very
soon'' and, if so, what number is reasonable.
Request for Additional Comment
Section 701.23(b)(1)(iii) and (iv), with certain restrictions,
allows an FCU to purchase student and real estate loans from any source
if the FCU is pooling them for sale on the secondary market. The NCUA
Board is also interested in receiving comment on whether the types of
loans that can be purchased from any source for purposes of creating
pools for sale should be expanded to include auto and credit card
loans. Comments on this issue will assist the Board in determining
whether to propose regulatory changes to include auto and credit card
loans.
REGULATORY PROCEDURES
Regulatory Flexibility Act
The Regulatory Flexibility Act requires the NCUA to prepare an
analysis to describe any significant economic effect any regulation may
have on a substantial number of small credit unions, meaning those
under $1 million in assets. The NCUA Board has determined and certifies
that the proposed rule if adopted will not have a significant economic
impact on a substantial number of small credit unions. The reason for
this determination is that it is highly unlikely that small credit
unions would be engaged in pooling real estate loans for sale on the
secondary market. Accordingly, the NCUA Board has determined that a
Regulatory Flexibility Analysis is not required.
Executive Order 12612
Executive Order 12612 requires NCUA to consider the effect of its
actions on state interests. The proposed amendments will only apply to
federal credit unions. Section 741.8(b)(1) specifically exempts state
chartered federally insured credit unions from 701.23(b)(1)(iv).
Proposed Sec. 701.23(b)(v) only applies to FCUs.
Paperwork Reduction Act
The proposal does not impose any additional paperwork requirements
on FCUs.
List of Subjects in 12 CFR Part 701
Credit unions, Eligible obligations.
By the National Credit Union Administration Board on July 30,
1998.
Becky Baker,
Secretary of the Board.
Accordingly, NCUA proposes to amend 12 CFR part 701 as follows:
PART 701--ORGANIZATION AND OPERATIONS OF FEDERALLY-INSURED CREDIT
UNIONS
1. The authority citation for part 701 continues to read as
follows:
Authority: 12 U.S.C. 1752(5), 1755, 1756, 1757, 1759, 1761a,
1761b, 1766, 1767, 1782, 1784, 1787, 1789 and 1798. Section 701.6 is
also authorized by 31 U.S.C. 3717. Section 701.31 is also authorized
by 15 U.S.C. 1601 et seq.; 42 U.S.C. 1981 and 3601-3610. Section
701.35 is also authorized by 42 U.S.C. 4311-4312.
2. Amend Sec. 701.23 by adding a sentence to the end of paragraph
(b)(1)(iv) and by revising paragraph (b)(3) to read as follows:
Sec. 701.23 Purchase, sale and pledge of eligible obligations.
* * * * *
(b) * * *
(1) * * *
(iv) * * * A pool must include a substantial portion of the credit
union's own loans and must be sold promptly.
* * * * *
(3) The aggregate of the unpaid balance of eligible obligations
purchased under paragraph (b) of this section cannot exceed 5% of the
unimpaired capital and surplus of the purchaser. The following can be
excluded in calculating this 5% limitation:
(i) Student loans purchased in accordance with paragraph
(b)(1)(iii) of this section;
[[Page 41978]]
(ii) Real estate loans purchased in accordance with paragraph
(b)(1)(iv) of this section;
(iii) Eligible obligations purchased in accordance with paragraph
(b)(1)(i) of this section that are refinanced by the purchaser so that
it is a loan it is empowered to grant; and
(iv) An indirect lending or indirect leasing arrangement that is
classified as a loan and not the purchase of an eligible obligation
because the federal credit union makes the final underwriting decision
and the sales or lease contract is assigned to the federal credit union
very soon after it is signed by the member and the dealer or leasing
company.
* * * * *
[FR Doc. 98-20952 Filed 8-5-98; 8:45 am]
BILLING CODE 7535-01-P
