Mobile Payments Do Merchants Have the Hot Potato? By Holly K. Towle The mobile transformation has catalyzed an array of new payment methods (NPM) emerging both in the United States and around the world. The concept of mobile payments usually refers to payments made with a mobile device, such as a cellular phone, as well as various other elements, such as applications that might be on the phone or are otherwise used by devices relating to the NPM. Discussions about mobile payments usually cover the imperative of meeting the needs of particular participants, such as payment method organizations (e.g., a card brand like Visa); clearinghouses and networks (like ACH); issuers and acquirers of cards that work with an NPM (like a “swipe” device for a mobile device); issuers of NPMs that work without cards (like a bar, QR, or other code); carriers (like a telecom); and, of course, consumers. The discussion is relatively silent, however, about merchants and their needs and obligations. But not entirely silent. Much has been said about the need to offer NPMs that merchants can use to make their customers happy. The silence centers on who has or should have the “hot potato” of regulatory compliance. Is it the merchant? Or is it one or more of the other participants? Another question is whether the entity holding the hot potato ends up with it because the law tossed it their way—or because a contract made the toss. Related questions are whether the NPM is transparent enough for the hotpotato-holder to determine what laws apply, and whether the relevant contracts, technology, and equipment allow the hotpotato-holder to understand and achieve legal compliance. In reality, there will be many hotpotato-holders, and this article could be written with great sympathy (given the maze of regulations and costs of compliance) from the perspective of any of photo: istockphoto Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association. them. Because merchants are overlooked more than other participants, this article takes a view from their perspective of several issues that merchants may wish to consider before accepting any NPM arrangement. The Bottom Line NPM structures and contracts largely appear to be ignoring the many issues facing merchants. They also seem to assume that merchants will have or accept the same attitudes and risk allocations for NPMs that they have traditionally accepted for credit and debit cards. Such assumptions are questionable in a world where merchant attitudes are changing and the success of a popular NPM may plummet if merchants discover it lobs hot-potato risks to them or risks that they cannot practically address. Recent litigation by merchants against payment organizations illustrates that merchant attitudes are changing. NPMs that anticipate what merchants (and other participants) will be legally required to do and that “bake in” an ability for achieving regulatory compliance should have a greater chance of longterm success. Accordingly, this article addresses a dozen questions merchants might ask when offered an NPM. I focus on only a few such questions because the mobile payment combination of money, consumers, advertising, electronics, and old and new payments alternatives can trigger a staggering number of compliance-costly federal and state laws and regulations per NPM. The fact that regulators might be standing back to see what develops before taking enforcement action is akin to an ephemeral reprieve. Industry lore to the effect that mobile payments fall between so many cracks Holly K. Towle is a partner with K&L Gates LLP, an international law firm. She is listed among the top 25 information technology lawyers in the Best of the Best USA and is included in the Financial Institutions Law and Information Technology sections of The Best Lawyers in America. that they are unregulated is a myth. What Is the Actual Transaction, and Who Has the Related Regulatory Compliance Obligations? It is a serious mistake to assume that all NPMs are the same or even similar. Each is unique, and small factual differences can switch on or off different legal or contractual rules and exceptions. Merchants asked to accept any NPM should ask this question: Do I know what the NPM actually is as a legal matter, and do I have any legal compliance obligations—or exposure for someone else’s noncompliance? Answers are not easy or readily apparent, and the NPM contract might or might not reflect the actual NPM structure or applicable laws. This is a new frontier. For example: assume that you (the reader) are a merchant and are asked to let your customers use their mobile phones with a new terminal or card reader the NPM gave you. You’re not really sure what payment method the NPM utilizes, but you get paid by the NPM provider within a few days. Something obviously worked, but what actually happened and what did you do, by law or contract, and did any of that trigger any legal obligations you did not meet? Go further: • Federal Regulation E (12 C.F.R. Part 1005) applies to consumer debit card transactions and certain “asset accounts,” gift cards, loyalty programs, and so on. It requires you to provide a paper receipt for debit card transactions. Did you comply (and did the paper comply with Reg. E and debit card rules)? Could you have complied (did the NPM have printing functionality)? Some card rules allow delivery of e-receipts, but bow to applicable law. One law is the federal Electronic Signatures in Global and National Commerce Act (ESIGN), which allows substituting an “e-receipt,” but only if particular disclosures and consumer consents are first obtained. Who complied with ESIGN (and if it was supposed to be you, what feature of the NPM allowed you to do that, and how long would the line have become while you did it)? • Is the NPM provider a service provider you can even use, i.e., does it appear on any required, approved list of service providers or agents for the transactions at issue and if not, why not? • Maybe you relied on an NPM code relating to consumers who registered for an NPM account and then associated one or multiple payment methods with their NPM account. You have no idea what payment method was used by the consumer and NPM for the transaction with you—you simply got a “We’re good to go” code, and you believed it and delivered merchandise. At that time, did you or someone else have a compliance obligation (by law or contract) that was not met? If the answers are “you” and “yes,” did the structure allow you to achieve compliance, or are you sailing on hope that somehow the NPM took care of it all? • Will use of the NPM put you in breach of processing contracts you already have? None of these and other questions can be answered generically. They vary per NPM and per the relevant laws and contracts (including card organization and payment system rules). Is Anyone Engaging in Prohibited Laundering? When a credit card is part of a transaction, card organization rules and some laws preclude “laundering.” In this context, that means submitting, or allowing someone else to submit for a merchant, credit card slips for transactions that were not actually between the submitting merchant and the cardholder. For example, assume Merchant 1, a small shoe store, doesn’t have an agreement allowing it to accept credit cards. It arranges for Company 2, an NPM provider that has a merchant agreement Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association. with Bank Y, to turn in all shoe transaction sales slips to Bank Y as if they were for Company 2’s transactions with cardholders. That’s laundering under card rules that prohibit it: Bank Y thinks every slip was for a sale of Company 2’s merchandise or services, i.e., Company 2 is laundering the shoe store’s sales slips. That, at least, was a common view until 2011. Current Visa and MasterCard Payment Service Provider (Visa) or Payment Facilitator (MasterCard) (PSP/PF) structures allow laundering by creating transparency. Company 2 must register with the relevant card organizations as a PSP and/or PF and may turn into Bank Y the shoe store slips and slips for many other merchants (“sponsored merchants”). Bank Y will know Company 2 is doing that, and both Company 2 and each sponsored merchant must comply with PSP/PF rules. The PSP/PF structure involves more than meets the eye. The good news is that there is now a structure allowing one company to submit slips for another. The bad news, at least for Company 2, is that the rules allocate to it very serious risks that might or might not create an acceptable business model. Everyone involved with an NPM should attempt to avoid violating the laundering rules. If the vehicle for doing so is use of a PSP/PF structure, everyone should attempt to determine their role and compliance obligations. Who Has PCI Obligations and Liabilities? PCI (payment card industry) is widely known as the data security standard for debit and credit cards. That standard (PCI DSS) is actually just one of the ever-increasing number of other PCI standards. For example, there’s a PCI payment application data security standard (PA-DSS), hardware standards, and tokenization “guidance” (a tokenization structure tries to substitute a different number (token) for the card number so that PCI-covered card data bypass the merchant; if done correctly, that eliminates the merchant’s compliance obligation for data, thereby, falling outside PCI DSS “scope”). In May 2012, the PCI Standards Council issued “Accepting Mobile Payments with a Smartphone or Tablet,” the premise of which is that mobile devices are insecure and that point-to-point encryption is advisable: Mobile devices are not necessarily designed to be secure input or storage devices for cardholder data. Your mobile payment solution thus requires additional technology, including encryption, to secure cardholder data acceptance. In September 2012, the PCI Standards Council issued the “PCI Mobile Payment Acceptance Security Guidelines” to provide software developers and mobile device manufacturers guidance on designing controls for merchants to accept mobile payments securely. Merchants offered an NPM should not assume it is PCI compliant. To the contrary, they should investigate which PCI standards apply to what and to whom. Some NPMs tout PCI compliance but fail to say for whom they are complying: themselves (in which case the merchant is still at risk): the merchant, or someone else? From the merchant’s perspective, the goal is to become comfortable that the NPM structure achieves compliance for the merchant, or that it takes the data the merchant is handling “out of scope” of PCI; that the NPM provider, software and hardware, and so forth are PCI approved; and that the contract with the NPM appropriately memorializes and supports all of that and the oral explanations provided by the NPM. Are There Other Data Security Obligations? PCI standards are not the only data security rules relevant to NPMs. NPMs tend to operate against a general background of federal and state laws and card organization and payment system rules requiring or expecting data security generally and also regarding particular data types (e.g., driver’s license, bank account number, SSN, payment card number, etc.). Merchants will want to know whether they or someone else must meet particular data collection, transmission, use, and security requirements, and if so, which ones? The answer will impact the viability of the NPM for the merchant and NPM sustainability. For example, does the NPM meet security guidance of these types: • “MasterCard Best Practices for Mobile Point of Sale Acceptance” (May 5, 2012) (focusing on development and deployment of Mobile Point-of-Sale acceptance solutions, the goal is to introduce best practices to facilitate MPOS growth by recommending actions, practices, and product features consistent with other acceptance channels; and to not supersede MasterCard rules or applicable laws). • “PCI Mobile Payment Acceptance Security Guidelines” v.1 (Sept. 9, 2012) (focusing on “payment applications that operate on any consumer electronic handheld device (e.g., mobile phone, tablet, or PDA) that is not solely dedicated to payment-acceptance transaction processing and where the electronic handheld device has access to clear-text data”). If the NPM Involves a Credit or Debit Card Transaction, Will the Transaction Fall Under “Card Present” or “Not Present” Merchant Risk Allocation Rules, or Something Else? When credit cards were first introduced, many merchants were reluctant to accept them and preferred sticking with checks. As an inducement to broaden acceptance, card organizations created the “card present” (face-to-face) riskallocation rule that shields a merchant from the risk of counterfeit cards or an imposter’s use of a valid card, if the merchant complies with all acceptance and authorization rules. In card-not-present situations such as e-commerce, the rule is the opposite, and the merchant typically bears that risk. So what is a “mobile transaction?” Certain aspects of such transactions are Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association. created or conducted in a non-face-toface environment (e.g., registering for an NPM account online), and other aspects that occur in a face-to-face environment (e.g., using the NPM at a physical store) where the card is present but not necessarily pulled out for review. Visa definitions for contactless mobile payments imply that the “card present” rule may apply at least to that type of transaction, although the authorization/ acceptance rules will change (such as to requiring the cardholder to enter a passcode instead of signing). The question may become moot given the move to “EMV” cards discussed in the following question, below, although the difficulties inherent in that move may cause deadlines to be missed and cause the “card present/not present” rules to linger longer than currently expected (e.g., an EMV-ready merchant won’t be able to comply with EMV acceptance/authentication rules if particular issuers are still issuing magnetic stripe cards). The point is that at least some of the card organizations have begun to create special rules for mobile transactions that should be reviewed to see to whom each NPM allocates the counterfeit/imposter risk and whether that allocation (and therefore the NPM) is acceptable to the merchant. Will the NPM Be Made Irrelevant by the Sea Change That Might Occur via the EMV Train Heading for Merchants? EMV (Europay, MasterCard, and Visa) specifications for payment cards were first published more than a decade ago and generally refer to “chip and pin” technology. As explained in an EMV whitepaper: The distinguishing feature of EMV is that the consumer payment application is resident in a secure chip that is embedded in a plastic payment card, often referred to as a chip card or smart card, or in a personal device such as a mobile phone. The chip provides three key elements: it can store information; it can perform processing; and because it is a secure element, it is able to store secret information securely, and perform cryptographic processing. These capabilities provide the means for secure consumer payments. (Emphasis added.) In order to execute a payment, the chip must connect to a chip reader in an acceptance terminal. There are two possible means by which this physical connection may be made, which are often referred to as contact or contactless. With contact, the chip must come into physical contact with the chip reader for the payment transaction to occur. With contactless, the chip must come within sufficient proximity of the reader (a maximum of 4cm) for information to flow between the chip and the acceptance terminal. Payment card infrastructure in the United States has been based for years on equipment reading the magnetic stripe on the back of cards, so the United States has been slow in converting to EMV. In 2011, however, at least Visa (and likely MasterCard, whose terms are harder to locate) added both a “carrot” and a “stick” to the conversion process. The Carrot: Visa, for example, will offer merchants the carrot of decreasing their PCI obligations. As explained by Visa, it will: eliminate the requirement for eligible merchants to annually validate their compliance with the PCI Data Security Standard for any year in which at least 75 percent of the merchant’s Visa transactions originate from chip-enabled terminals. To qualify, terminals must be enabled to support both contact and contactless chip acceptance, including mobile contactless payments based on Near Field Communication (NFC) technology. Contact chip-only or contactless-only terminals will not qualify for the US program. Everyone involved with an NPM should attempt to avoid violating the laundering rules. Qualifying merchants must continue to protect sensitive data in their care by ensuring their systems do not store [other sensitive data and adhere to PCI DSS generally]. This ability to avoid some PCI compliance may accelerate adoption of both EMV and mobile payments and might steer physical, point-of-sale merchants towards Near Field Communication technology. All of this is scheduled to happen quickly, e.g., by April 1, 2013, Visa will require US processors and sub-processor service providers for banks that acquire card “slips” to be able to support merchant acceptance of chip transactions. Whether it will actually happen that quickly is debatable given the extra issues US law poses for EMV programming designed for less complex legal regimes. The Stick: This article has previously explained that under the traditional “card present/card not present” risk allocation, face-to-face merchants who properly accept a card do not bear the counterfeit card and imposter risks. That is scheduled to change in 2015. Unless a merchant converts to EMV card acceptance, the merchant will bear that risk (at least with respect to EMV cards). If Technologies Will Be Mandated, What About Patents? ”Food fight” is the easiest way to characterize the number of patents impacting mobile payments. A patent holder has the Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association. exclusive right to “use” the patented invention, so merchants “using” equipment or apps violating a patent have a potential infringement risk. So do persons who “make” or “have made” the device or app containing the patented invention (e.g., Apple recently sued Samsung, the handset maker, as opposed to handset users). Any infringer may be sued, so a question for merchants and other participants is, “What indemnification is included, or not, in the NPM contract?” Who Has the Authentication Hot Potato? As discussed previously, regarding “card present/not present” and EMV rules, the question of who bears the imposter risk is a hot potato simply no one wants to catch. The potato won’t land in thin air, however, so a question for NPM providers and merchants is “Who has the risk by law or contract for the particular NPM?” This comes down to who bears the risk of determining whether the customer using an NPM for payment really, really is the person whom the NPM thinks she is? The merchant can be in the best and worst position to attempt to determine identity (no one can actually determine it absent dipping into biometrics, which would require a different article). In general, card organization rules preclude merchants from collecting identification data. This is ironic at a time when the FTC views failure to have adequate authentication methods as being, potentially, an unfair act.1 States also have conflicting laws that vary by particular data type and collection method (e.g., SSN vs. driver’s license vs. biometric vs. “swiped” vs. viewed but not memorialized, etc.). Visa rules include a verification method for mobile payment devices, which appears to focus on the device as opposed to the merchant. If so, it should not come as a surprise to NPM providers that a contract asking the merchant to accept the identification risk may well be questioned. Does the NPM Allow Lawful Sending of Text Messages? An NPM typically sends text messages for transactional or promotional purposes. Just as a consumer might carry her paper “bakery card” in her wallet so that she can have it “punched” every time she buys a loaf at her favorite bakery, so she might want that loyalty feature to be part of her electronic wallet. A hot-potato question here is who has the obligation to comply with laws relevant to text messages and “loyalty” programs, and if it’s the merchant, does the NPM contain a means for merchants to do so? This is a version of the first question in this article regarding “whose transaction is it,” only this time the question is whose loyalty program or text is it? Federal and state laws govern “loyalty” programs, and, even for some exempt programs, certain disclosures must be made. These features can also attract marketing, privacy, behavioral advertising, “unfair acts or deceptive practices,” and many other compliance issues. For now, simply note that any text, transactional or promotional, is potentially a “call” under the Telephone Consumer Protection Act and is regulated by the Federal Communications Commission and/or the FTC. The TPCA is nothing to be sneezed at: it includes statutory damages and unexpected details regarding what must be in a consent. Does the NPM Deal With Privacy Issues Such That Those Allocated to the Merchant Can Be Readily Ascertained? The FTC currently views data that can be tied to an individual’s device, such as a mobile phone, as “personal information” that is subject to privacy and data protection laws even if the information does not actually identify the individual. The FTC and/or California regulators believe that mobile app providers are “online services” subject to laws such as California’s Privacy Protection Act, the federal Children’s Online Privacy Protection Act, and privacy principles based on unfair acts and deceptive practices rules. Merchants and other participants should review applications involved with the NPM in light of potential privacy issues. For example: • What information will be collected by the app, the phone provider, and anyone else along the route that data will travel? • Will there be “tracking” or “location” data? • What do relevant privacy policies need to say? If the merchant is required to provide its own policy, what information, assurances, and “place” in the NPM enables that? • Does the app meet privacy guidance for mobile phones issued by industry and/or any app stores through which the app can be downloaded? • If the app can be accessed via social media credentials (e.g., Facebook), does the app meet the privacy and other “developer” rules of the social network? Is the NPM Structured So That the ESIGN Disclosure Rule Will Have Been Satisfied Before the Customer Gets to the Merchant? As noted in the first question, ESIGN precludes providing information electronically that was supposed to have been provided “in writing” to a “consumer.” Electronics may not be substituted for the paper unless a lengthy “e-dealings” disclosure is first made and the consumer consents to disclosure and confirms it (in a special way) before the other information (that was supposed to be on paper) is provided. Some NPMs allow customers to sign up with merchants or others for products or services that require such “written” information, so a question will be whether the NPM is structured to satisfy ESIGN. Ironically, even when ESIGN’s consumer rule does not apply, there are other laws to consider (e.g., the Uniform Electronic Transactions Act, UETA) and regulations are increasingly imposing technical rules for electronic transactions creating similar issues (some of these might not be lawful under ESIGN, but that is a story for another day). Again, the question is whether the NPM accomplishes compliance with whatever is out there. The answer might be “no,” given Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association. the myriad rules that vary with product, service, and merchant types, i.e., it may be impossible or impractical for the NPM provider to envision and program for that entire world in advance. If so, the question turns to whether the NPM is configured such that the merchant or others can comply with their particular compliance regimes without extensive customization. Or are both approaches an impossible pipe dream? Does the NPM Allow and Facilitate Compliance by Merchants With Obligations That Legally Are the Merchants’? As noted in the first question, a primary risk of NPMs is that it is not always clear what the NPM is, so it can be very difficult for each participant to figure out what is going on and what each is supposed to do. The problem is greater for merchant participants. If and when they can determine that X law applies, they might discover that the NPM offers no way to achieve their compliance. To avoid condemning any NPM, I’ll illustrate the point with a foreign law that won’t even be implemented until 2014, i.e., the new EU Consumer Rights Directive that EU member states are required to adopt and publish by December 13, 2013, and apply as of June 13, 2014. This new directive is, in US terminology, a consumer protection statute that regulates the acquisition of goods, services, and digital content in face-to-face, non-face-to-face (called distance contracts), and off-premise contracts (such as door-to-door sales). Detailed and extensive disclosures must be made by the “trader” (merchant). A recital notes that in a mobile phone transaction, the merchant might want to link off to a website that can better contain the extensive information—does the NPM accommodate that? Are “spots” for the obvious disclosures (such as merchant identification and taxes, etc.) included in the NPM programming? Another section restricts surcharges by the merchant such that it may not exceed the “cost borne by the trader for the use of such means.” Does the NPM allow the merchant to ascertain what those costs, or their equivalent, are? NPMs desiring widespread acceptance and a long life may want or need to design for the types of legal obligations merchants face so that merchants can know that they have been addressed, or that they will have the ability to use anticipatory NPM customization options to meet their own unique needs. Will that be difficult and costly for the NPM provider? Absolutely. Will that inhibit or even prevent competition? Absolutely. The compliance complexity and costs are dramatic for mobile payments, and the creativity of small players may well be lost along the regulatory way. For players that can afford compliance, failure to deal with this issue might be a defining factor in the acceptability of the NPM. Merchants might not accept or might abandon NPMs that do not invest in facilitating merchants’ understanding, and in helping them to meet their compliance needs. The Good News and the Bad News The good news of the mobile payments arena is that it is new, creative, and evolving every day to create incredible systems and services that can benefit all aspects of society, including those often overlooked, such as “unbanked” consumers. The bad news is that it’s not as simple as having an innovative, user-friendly, and logical NPM that consumers love. To protect the very consumers who eschew cumbersome details, consumer protection and fraud prevention laws permeate this arena. The mantra is that only bank structures are actually regulated and that, as yet, mobile payments are a land of opportunity for any developer with the great idea. Only the opportunity part is true. The “only banks are regulated” part is not true. Regulators may be holding back to see what happens before bringing enforcement actions against The silence centers on who has or should have the “hot potato” of regulatory compliance. nonbanks. However, that will not necessarily deter class action plaintiffs, and even regulatory forbearance (if any) is not certain or fulsome. We’re talking money. There’s a reason it’s regulated, including by criminal laws. The NPMs that become widely accepted and that will be more than a flash-inthe-pan are likely to be those that take seriously the needs of all participants, including merchants. If the path toward a new payments future is to allow the range of competitors to include large and small players while also allowing merchants to test a variety of NPMs, regulators may wish to make that officially possible. This can be achieved by issuing enabling regulations or interpretations, creating safe harbors, and issuing “no action” letters. A substitute for the “fingers-crossed” world in which all participants are currently living would be welcomed and beneficial to all, including consumers. Consumers will only benefit from NPMs if these new payment vehicles can be provided at a cost, including compliance costs, affordable by all. u Endnotes 1. See discussion in Raymond T. Nimmer & Holly K. Towle, The Law of Electronic Commercial Transactions at chapters 6 and 16 (2003–2012, A.S. Pratt & Sons). Privacy laws are discussed in chapter 12. Published in The SciTech Lawyer, Volume 9, Number 3, Winter/Spring 2013. © 2013 American Bar Association. Reproduced with permission. All rights reserved. This information or any portion thereof may not be copied or disseminated in any form or by any means or stored in an electronic database or retrieval system without the express written consent of the American Bar Association.