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Vol. 78 Wednesday, No. 113 June 12, 2013 Part III Bureau of Consumer Financial Protection 12 CFR Part 1026 Ability-to-Repay and Qualified Mortgage Standards Under the Truth in Lending Act (Regulation Z); Final Rule VerDate Mar<15>2010 18:16 Jun 11, 2013 Jkt 229001 PO 00000 Frm 00001 Fmt 4717 Sfmt 4717 E:\FR\FM\12JNR3.SGM 12JNR3 mstockstill on DSK4VPTVN1PROD with RULES3 35430 Federal Register / Vol. 78, No. 113 / Wednesday, June 12, 2013 / Rules and Regulations BUREAU OF CONSUMER FINANCIAL final rule (the 2013 ATR Final Rule) to included in points and fees as loan PROTECTION implement these ability-to-repay originator compensation paid by the requirements and qualified mortgage consumer or the creditor to the mortgage 12 CFR Part 1026 provisions. See 78 FR 6407 (Jan. 30, broker. [Docket No. CFPB–2013–0002] 2013). At the same time, the Bureau The final rule excludes from points issued a proposed rule (the 2013 ATR and fees compensation paid by a RIN 3170–AA34 Proposed Rule or Bureau’s proposal) creditor to its loan officers. The Bureau related to certain proposed exemptions, concluded that there were significant Ability-to-Repay and Qualified modifications, and clarifications to the operational challenges to calculating Mortgage Standards Under the Truth in ability-to-repay requirements. See 78 FR individual employee compensation Lending Act (Regulation Z) 6621 (Jan. 30, 2013). This final rule accurately early in the loan origination AGENCY: Bureau of Consumer Financial addresses the issues put forth for public process, and that those challenges Protection. comment in the 2013 ATR Proposed would lead to anomalous results for consumers. In addition, the Bureau ACTION: Final rule; official Rule. See part II.B below and part II.B– concluded that structural differences interpretations. F of the 2013 ATR Final Rule for a complete discussion of the statutory and between the retail and wholesale SUMMARY: The Bureau of Consumer regulatory background to the ability-to- channels lessened risks to consumers. Financial Protection (Bureau) is repay requirements. The Bureau will continue to monitor the amending Regulation Z, which market to determine if additional implements the Truth in Lending Act Loan Originator Compensation and the protections are necessary and evaluate (TILA). Regulation Z generally prohibits Points and Fees Calculation whether there are different approaches a creditor from making a mortgage loan The Dodd-Frank Act generally for calculating retail loan officer unless the creditor determines that the provides that points and fees on a compensation consistent with the consumer will have the ability to repay qualified mortgage may not exceed 3 purposes of the statute. the loan. The final rule provides an percent of the loan balance and that The final rule retains an ‘‘additive’’ exemption to these requirements for points and fees in excess of 5 percent approach for calculating loan originator creditors with certain designations, will trigger the protections for high-cost compensation paid by a creditor to a loans pursuant to certain programs, mortgages under the Home Ownership loan originator other than an employee certain nonprofit creditors, and and Equity Protection Act (HOEPA).1 of creditor. Under the additive mortgage loans made in connection with The Dodd-Frank Act also included a approach, § 1026.32(b)(1)(ii) requires certain Federal emergency economic provision requiring that loan originator that a creditor include in points and fees stabilization programs. The final rule compensation be counted toward these compensation paid by the creditor to a also provides an additional definition of thresholds, even if it is not paid up-front mortgage broker, in addition to up-front a qualified mortgage for certain loans by the consumer directly to the loan charges paid by the consumer to the made and held in portfolio by small originator. creditor that are included in points and creditors and a temporary definition of The Bureau had solicited comment on fees under § 1026.32(b)(1)(i). a qualified mortgage for balloon loans. how to apply the statutory requirements Exemptions for Certain Creditors and Finally, the final rule modifies the in situations in which payments pass Lending Programs requirements regarding the inclusion of from one party to another over the Certain creditors and nonprofits. The loan originator compensation in the course of a mortgage transaction. The final rule provides an exemption from points and fees calculation. Bureau was particularly concerned the ability-to-repay requirements for DATES: This rule is effective January 10, about situations in which the creditor extensions of credit made by certain 2014. pays compensation to a mortgage broker types of creditors. Creditors designated FOR FURTHER INFORMATION CONTACT: or its own loan originator employees by the U.S. Department of the Treasury Jennifer B. Kozma or Eamonn K. Moran, because there is no simple way to as Community Development Financial Counsels; Thomas J. Kearney or Mark determine whether the compensation is Institutions and creditors designated by Morelli, Senior Counsels; or Stephen paid from money the creditor collected the U.S. Department of Housing and Shin, Managing Counsel, Office of from up-front charges to the consumer Urban Development as either a Regulations, at (202) 435–7700. (which would already be counted Community Housing Development against the points and fees thresholds) SUPPLEMENTARY INFORMATION: Organization or a Downpayment or from the interest rate on the loan Assistance Provider of Secondary I. Summary of the Final Rule (which would not be counted toward Financing are exempt from the ability- The Bureau is issuing this final rule the thresholds). to-repay requirements, under certain to adopt certain exemptions, The final rule excludes from points conditions. The final rule also generally modifications, and clarifications to and fees loan originator compensation exempts creditors designated as TILA’s ability-to-repay requirements. paid by a consumer to a mortgage broker nonprofit organizations under section TILA section 129C, as added by sections when that payment has already been 501(c)(3) of the Internal Revenue Code 1411, 1412, and 1414 of the Dodd-Frank counted toward the points and fees of 1986 (26 U.S.C. 501(c)(3)) that extend Wall Street Reform and Consumer thresholds as part of the finance charge credit no more than 200 times annually, Protection Act (Dodd-Frank Act), under § 1026.32(b)(1)(i). The final rule provide credit only to low-to-moderate generally requires creditors to make a also excludes from points and fees income consumers, and follow their reasonable, good faith determination of compensation paid by a mortgage broker own written procedures to determine a consumer’s ability to repay a mortgage to an employee of the mortgage broker that consumers have a reasonable ability loan and creates a presumption of because that compensation is already to repay their loans. compliance with these ability-to-repay Credit extended pursuant to certain 1 See title I subtitle B of the Riegle Community requirements for certain loans Development and Regulatory Improvement Act of lending programs. The final rule designated as ‘‘qualified mortgages.’’ On 1994, Public Law 103–325, 108 Stat. 2160 (Jan. 25, provides an exemption from the ability- January 10, 2013, the Bureau issued a 1994). to-repay requirements for extensions of VerDate Mar<15>2010 18:16 Jun 11, 2013 Jkt 229001 PO 00000 Frm 00002 Fmt 4701 Sfmt 4700 E:\FR\FM\12JNR3.SGM 12JNR3 mstockstill on DSK4VPTVN1PROD with RULES3 Federal Register / Vol. 78, No. 113 / Wednesday, June 12, 2013 / Rules and Regulations 35431 credit made pursuant to programs intends to study whether the definitions began to decline in 2005, however, administered by a housing finance of ‘‘rural’’ or ‘‘underserved’’ should be refinancing became more difficult and agency and for an extension of credit adjusted and to work with small delinquency rates on subprime and Alt- made pursuant to an Emergency creditors to transition to other types of A products increased dramatically.4 By Economic Stabilization Act program, products, such as adjustable-rate the summer of 2006, 1.5 percent of loans such as extensions of credit made mortgages, that satisfy other qualified less than a year old were in default, and pursuant to a State Hardest Hit Fund mortgage definitions. this figure peaked at 2.5 percent in late program. The ability-to-repay rules as revised 2007.5 As the economy worsened, the by this final rule will take effect on rates of serious delinquency (90 or more Small Creditor Portfolio and Balloon- January 10, 2014, along with various days past due or in foreclosure) for the Payment Qualified Mortgages other rules implementing new mortgage subprime and Alt-A products began a The final rule contains several protections under the Dodd-Frank Act. steep increase from approximately 10 provisions that are designed to facilitate II. Background percent in 2006, to 20 percent in 2007, compliance and preserve access to to over 40 percent in 2010.6 Although credit from small creditors, which are A. Mortgage Market Background the mortgage market is recovering, defined as creditors with no more than The mortgage market is the single consumers today continue to feel the $2 billion in assets that (along with largest market for consumer financial effects of the financial crisis. affiliates) originate no more than 500 products and services in the United Community-Focused Lending Programs first-lien mortgages covered under the States. In 2007 and 2008 this market ability-to-repay rules per year. The collapsed, greatly diminishing the While governmental and nonprofit Bureau had previously exercised wealth of millions of American programs have always been an authority under the Dodd-Frank Act to consumers and sending the economy important source of assistance for low- allow certain balloon-payment into a severe recession.