Mortgage Banking & Consumer Credit Alert November 2008 Author: Laurence E. Platt +1.202.778.9034 larry.platt@klgates.com K&L Gates comprises approximately 1,700 lawyers in 28 offices located in North America, Europe and Asia, and represents capital markets participants, entrepreneurs, growth and middle market companies, leading FORTUNE 100 and FTSE 100 global corporations and public sector entities. For more information, visit www.klgates.com. www.klgates.com Striking the Right Balance Are the Federal Reserve Board’s newly issued Home Ownership and Equity Protection Act (HOEPA) regulations strong enough to cause Congress to abandon its efforts in the coming year to reform the business of originating residential mortgage loans? The Federal Reserve Board (Fed) released its final regulations under the Truth in Lending Act (TILA)/HOEPA on July 14, 2008. (The rule was published in the Federal Register on July 30, 2008.) Under the regulations, a consumer may sue a lender for substantial monetary damages if a lender extended credit without properly accounting for the borrower’s ability to repay the loan. This right to sue, however, is limited to borrowers with subprime loans. It does not authorize claims against subsequent purchasers or holders of the loan. If there is a defensive air to these final regulations, recall Rep. Barney Frank’s (D-Massachusetts) threat to strip the Fed of its consumer-protection oversight before the Fed’s proposal of these rules. However, while his Mortgage Reform and AntiPredatory Lending Act of 2007 (the House bill) - containing many origination reforms succeeded in passing the House, it did not progress beyond that, as the session was drawing to a close. Similarly, Sen. Christopher Dodd (D-Connecticut) quipped that the Fed (and other federal regulators) were “asleep at the switch,” and wondered whether they “hit the snooze button” once the alarms in the subprime mortgage market started sounding. (See the March 4, 2008, press release from the office of Sen. Christopher S. Dodd, “Senator Dodd Calls for ‘Substantial, Meaningful Action’ from Regulators to Address America’s Credit Crisis,” at http://dodd.senate.gov/index.php?q=node/4292.) However, Dodd’s Home Ownership Preservation and Protection Act of 2007 (the Senate bill) never went to a vote, although some of its concepts were incorporated into the Housing and Economic Recovery Act of 2008 (HERA) (Pub. Law No. 110-289). Capitol Hill rushed to pass the gargantuan HERA, which President Bush signed on July 30, 2008, to respond to the foreclosure crisis and other issues. While that act amends TILA, it does not contain many of the mortgage origination reforms that both Frank and Dodd initially targeted in their own bills. Although no new legislation for the reform of mortgage origination practices is expected before the November elections, the question remains whether a new administration will try to go beyond the recent reforms adopted by the Fed in its HOEPA final rule. Virtually all of the recent governmental reform initiatives involving loan origination focus on the same four questions: First, are there certain types of consumers who need enhanced protection more than others? Second, are there certain loan features or underwriting guidelines that should be outright prohibited? Third, should mortgage brokers and mortgage lenders owe a duty of care to loan applicants to protect them from their own bad choices? Last, what remedies should be available to aggrieved consumers to contest legal violations? The Fed’s new regulations address each of these issues, but it has not gone as far as the House and Senate bills would have, had they been enacted. Mortgage Banking & Consumer Credit Alert Summary of HOEPA regulations Defining them as “higher-priced mortgage loans,” the Fed created a new class of closed-end, owneroccupied, subprime residential mortgage loans that fall between “high-cost” loans under HOEPA and “prime” loans. The final regulation provides one set of new requirements that apply only to these higherpriced mortgage loans, another set that apply to most closed-end residential mortgage loans secured by the consumer’s principal dwelling, and a last category that apply to virtually all residential mortgage loans. Prohibiting a lender from making a loan without regard to a borrower’s ability to repay the loan from verified income and assets other than the home’s value is the hallmark of the new restrictions for higher-priced mortgage loans. In addition, those higher-priced loans must not include prepayment penalties if the payment can change during the loan’s first four years, and in all other cases a prepayment penalty period must not last for more than two years and may not be imposed on a “samecreditor refinance.” A lender must establish an escrow account for the payment of property taxes and homeowners’ insurance for first-lien, higher-priced loans, although it may offer the borrower the opportunity to cancel the escrow account after one year. All closed-end mortgages secured by a consumer’s principal dwelling are subject to certain servicing requirements. A loan servicer may not: fail to credit a payment to a consumer’s account as of the date the payment is received; fail to provide a payoff statement within a reasonable period of time; or “pyramid” late fees. In addition, a creditor or broker of principal-dwelling loans is prohibited from coercing or encouraging an appraiser to misrepresent the value of a home. A creditor is also prohibited from extending credit based on an appraisal if the creditor knows, at or before loan consummation, of any prohibited coercion or encouragement in connection with that appraisal (unless the creditor can show that the appraisal does not materially misstate or misrepresent the dwelling’s value). Last, creditors must provide a Good Faith Estimate of the loan costs, including a schedule of payments, within three days after a consumer applies for any principal- dwelling loan, which includes home-improvement loans and loans to refinance existing loans. Advertising for virtually all residential mortgage loans must contain additional information about rates, monthly payments and other loan features, and is subject to a ban on seven deceptive or misleading practices, including representing that a rate or payment is “fixed” when it can change. Enhanced protection based on the cost of the loan Market rejection of high-cost loans In 1994, Congress amended TILA by enacting HOEPA to impose a new federal regulatory regime for high-cost loans. The law relies on a quantitative threshold to determine its applicability. One test is based on the yield of Treasury securities calculated on the annual percentage rate of the loan, which is a formula long used for disclosure purposes under TILA and is designed to depict the all-in cost of a loan. The other test is the total points and fees charged to the borrower. Loans that exceed either threshold are subject to HOEPA. Underlying HOEPA was a public policy premise that consumers who pay materially more for a residential mortgage loan than market prices for prime loans probably need greater protection than mere disclosures could provide. Whether it is a brutal need for credit that blinds the borrower to disclosed risks or unsophisticated borrowers who simply cannot understand the contents of the disclosures, the result is the same. Lenders are required to protect at-risk borrowers from their perceived inability to make prudent loan choices. And the borrower may raise any claim or defense against the ultimate holder that it may raise against the originating lender - the so-called assignee liability. Not many in the industry worry about the scope of HOEPA’s prohibitions because precious few will make, buy, finance or securitize high-cost loans. Some of the provisions are inherently subjective so that even a lender acting in good faith cannot tell whether it has complied with the law. Moreover, the remedies available to a borrower under HOEPA against both the originating lender and any assignee empower borrowers to reap large economic windfalls that may bear no rational relationship to actual harm. Indeed, a loan can evaporate in the hands November 2008 | 2 Mortgage Banking & Consumer Credit Alert of the holder regardless of whether the holder knew of or participated in the origination of the loan. Virtually no one will risk his or her capital to make or buy a loan where the potential risks outweigh the potential return. Consumer advocates long have claimed that the highcost test for a HOEPA loan was too high to protect borrowers in need. In state after state, consumer groups successfully lobbied state legislatures to pass their own mini-HOEPA statutes. These local initiatives materially reduced the financial triggers that determined the classification of a loan as high-cost and materially expanded the inherently subjective restrictions on lenders. While the amount of the reductions differed, the basic approach was the same. The rationale was that the cost of credit should determine the scope of the enhanced legal protection; the more the cost, the greater the protection. In many cases, the end result was the same as with HOEPA. Few will make, buy, finance or securitize high-cost loans under state laws that subject creditors and assignees to monetary damages bearing no rational relationship to actual harm based on violations of laws that are inherently subjective. Creation of new category for higher-cost loans Recent federal initiatives reinforce the policy premise that higher-cost loans should carry greater consumer protections. Yet if the industry won’t play in the highcost loan market, how can one define a subprime loan in a way that provides greater protections but still supports an active market? The answer is the creation of a new category of loans based on their cost, where the protections afforded consumers are less extensive than those provided under high-cost loans but more than those provided for prime loans. Just as with “high-cost” loans, the public policy question is how to define the cost triggers? The new HOEPA regulations take a simpler approach to defining a quantitative proxy for subprime loans. The test does not rely on either the total points and fees charged on the loan or the yield of Treasury securities. Instead, the Fed sought a more perfect proxy for the subprime market. Defining subprime loans as “higher-priced mortgage loans,” the Federal Reserve Board will publish the “average prime offer rate,” based on a survey currently published by Freddie Mac. A loan is “higher-priced” if it is a first-lien mortgage and has an annual percentage rate that is 1.5 percentage points or more above this index, or 3.5 percentage points if it is a subordinatelien mortgage. Scope of enhanced protections After isolating which loans would be subject to the new requirements, lawmakers must determine what new requirements would apply to such loans. One criticism is type of loan product. Although negatively amortizing, nontraditional mortgages have been around for years, the loans typically were used to provide more affluent, self-employed borrowers with flexibility to make lower monthly payments to account for irregular income - not as a device to qualify borrowers for loan amounts for which they might not otherwise qualify. Similarly, adjustable-rate mortgage (ARM) loans have been around for more years than “subprime” has been a word in the dictionary. So why all the controversy? Well, payment-option ARMs (where borrowers may choose the amount of their monthly payments in excess of a minimum) or interest-only loans (where borrowers may pay only interest for several years before the loan begins to amortize and principal must be repaid) offer consumers the flexibility to manage their cash flows. Yet those who obtain these loans to qualify for a larger mortgage than they could otherwise obtain may find it difficult to grapple with the resulting payment shock. Refinancing out of a negatively amortizing loan can be difficult if property values decline and consumer credit is less available. Like disregarding the calorie and fat content on a food label, many consumers disregarded the detailed disclosures of this inherent risk; their eyes were bigger than their stomachs in their ability to digest increasing debt payments. If one-year ARMs have been a staple of the conventional loan market for so long, why are hybrid 2/28 and 3/27 ARMs regarded with such disfavor? Is it the product itself, the pricing of the product or the circumstances of the borrowers who obtain the product? Generally speaking, the criticism of hybrid ARMs centers on the size and frequency of the adjustments. If the initial interest rate is an introductory rate, then there will be an increase in payments upon the expiration of the initial fixed term even if interest rates hold steady. Subsequent adjustments would depend on changes in the interest rate. The real issue with hybrid ARMs is the size of any adjustment. If there are caps at all on the initial and subsequent adjustments, the amount of the November 2008 | 3 Mortgage Banking & Consumer Credit Alert cap often is materially higher than one might find with traditional conventional conforming loan products. None of the federal or state statutory or regulatory initiatives seek to ban outright nontraditional mortgages or hybrid ARMs. Indeed, any such ban by a state might be federally preempted by the Alternative Mortgage Transaction Parity Act. Lawmakers, instead, are focusing on the role such products play in qualifying a borrower for a mortgage loan. In other words, the use of these products is more of an underwriting issue than an issue regarding the per se propriety of the products. Failing to determine a borrower’s ability to repay the loan through relaxed underwriting standards is the second major area that has drawn deep criticism. What is the actual amount of the monthly payment that the borrower must have the ability to repay? Is it the amount that is due after the loan closes? Or is it the higher amount that may be due when the introductory rate expires? Could it be the highest possible amount if the payments were to increase at each adjustment period to the maximum amount? The general public policy consensus at this point is that underwriting should not be based solely on a temporary initial payment that is expected to increase in a material way after closing. The failure to verify an applicant’s current and reasonably anticipated future income and financial assets through reliable, primary, third-party sources is considered by many to be a leading cause of the current high default rate among subprime and alternative-A borrowers. Lenders did not generally rely solely on the borrowers’ claims about their income. They pulled credit scores; they evaluated the reasonableness of the claimed amounts through secondary sources. But, depending on the loan product, lenders did not always use the old-fashioned way of laboriously verifying the borrower’s income and assets. Establishing the proper debt-to-income (DTI) ratio is the third element of the underwriting issue. How much of one’s income should be permitted to be used for monthly housing debt, and what should the relationship between DTI ratios and available liquid assets be? How much income should be left over to pay for other items, such as food, health care, credit cards and unanticipated expenses? Investors and insurers have established such guidelines for years, although they typically provide for variances based on compensating factors. Moreover, geographic areas with substantially higher housing prices generally require higher DTI ratios; the percentage of one’s income used to pay for monthly housing expenses generally is much higher in Los Angeles than Pittsburgh. Identifying the expenses that should be included in the total DTI calculation also is important. One major criticism from regulators was that lenders did not account for the cost of real estate taxes and insurance, for example. Loan-to-value (LTV) ratios also are considered an important part of underwriting in some circles. It really has nothing to do with a borrower’s ability to repay the debt on a monthly basis, but it is relevant to whether a borrower will have the flexibility to refinance the loan or whether a lender will have an equity cushion in the unfortunate circumstance of a default and foreclosure. The higher LTV ratios, particularly with a first-lien loan combined with a simultaneous piggyback second lien, might contribute to the likelihood of a default if a struggling borrower perceives that it makes no rational economic sense to stretch to make mortgage payments when the house is worth less than the loan. All of the federal and state initiatives to reform the mortgage origination market start with a requirement that a lender determine a borrower’s reasonable ability to repay the loan based on verified income and expenses. They require that determination to be based on the fully indexed rate without regard to the start rate of the loan. Reduced documentation of income generally is forbidden. These new legislative or regulatory underwriting standards may not establish a specific DTI, residual income or LTV ratio, but compliance presumptions or “safe harbors” generally include specific numerical tests. The real difference in approach is whether the lender is obligated to ensure the borrower’s reasonable ability to repay or is merely prohibited from making a loan without considering a borrower’s ability to repay the loan. In other words, is a lender responsible for an error in judgment made in good faith? To what extent is a lender obligated to predict with reasonable certainty the borrower’s anticipated future income and expenses, and account for those November 2008 | 4 Mortgage Banking & Consumer Credit Alert assumptions in the underwriting determination? The fear, of course, is that lenders will have to become the functional equivalent of insurance actuaries trying to predict the likelihood that applicants employed in troubled industries are likely to lose their jobs or applicants with a family history of medical problems are likely to die earlier than the term of the mortgage. Such determinations could lead to charges of unlawful discrimination, but are the natural consequence of requiring lenders to predict a borrower’s future ability to repay a loan. Luckily, the new HOEPA rules issued by the Fed saw the subtleties built into the analysis and clarified that lenders are not required to go beyond what they actually know at the time of consummation of the loan. The presence of a prepayment penalty is another major issue to draw closer scrutiny following the subprime crisis. States have regulated the amount of prepayment fees for quite some time--usually by limiting the amount or the duration of the fee. What the states did not do, however, is link any such limitation to the adjustment mechanics of the particular loan to which the penalty applied. For example, while states may have limited prepayment penalties to three years after origination, they did not vary this restriction when the loan provided for an adjustment after two years. Such a prepayment penalty may have impaired the ability or interest of the borrower to pursue a refinancing before the first adjustment occurred. Duty of care Until recently, mortgage banking laws and regulations did not impose explicit responsibilities on lenders to look out for the interests of loan applicants. Instead, laws would require voluminous and often overlapping disclosures to empower consumers to make rational choices. The theory was that the role of government was not to ensure that a consumer necessarily made the best choice when it came to the type or terms of a mortgage loan, but its role was to empower the consumer to comparison-shop through detailed disclosures and to make informed choices. In addition, the laws required or prohibited certain substantive practices where it was felt that consumers lacked the ability to protect themselves in the marketplace. Beyond that, it was up to lenders and applicants to look out for their respective interests. Many people believe that disclosures are not enough to protect a consumer. Securing a mortgage is the largest transaction that most consumers will undertake. A mistake can cost a consumer dearly. A common question asked by regulators is, who is watching out to make sure the consumer does not make an imprudent choice? There is a common law concept called the duty of care, upon which the law of negligence is based. If one has a duty of care to another and breaches that duty, the injured party may make a claim for damages resulting from that breach. Whether there is a duty of care in the first place, though, is a facts-and-circumstances test. The approach lawmakers are taking ranges from outright bans on prepayment penalties for high-cost or higher-cost loans to providing duration restrictions based on the earlier of a fixed number of years after loan closing and a fixed number of days before the initial reset or adjustment. Many regulators simply don’t buy the argument that prepayment penalties are necessary to lower the cost of mortgage lending because prime, conventional conforming and government-insured loans rarely have prepayment penalties. Generally speaking, case law indicates that lenders, like any counterparty to a contract, may have a form of a duty of care to their borrowers - known as a duty of good faith and fair dealing - but this duty does not arise until after the formation of a contract. Similarly, the common law of fraud and misrepresentation prohibits one from inducing another to rely on false statements - this is a form of duty of care. Generally, however, there is not a legally imposed duty of care of a lender to a loan applicant. The Fed’s final revision of HOEPA is instructive. It bans any prepayment penalty if the payment can change during the initial four years. For other higherpriced loans, a prepayment penalty period cannot last for more than two years. Both federal and state mortgage reform laws seek to impose an explicit statutory duty of care on mortgage brokers. This can take the form of a so-called fiduciary duty, which is the highest standard of care. Alternatively, it can take the form of specific obligations imposed on loan originators without characterizing the obligation as a duty of care. November 2008 | 5 Mortgage Banking & Consumer Credit Alert There are differing views about whether a lender should be required to watch out for the consumer’s interests. Loan applicants may believe that a broker exists to serve as a trusted adviser and represent the consumer’s interests with respect to the lender. Do loan applicants reasonably expect that lenders have a recognizable legal responsibility to protect their interests? How is obtaining a mortgage loan from a lender any different from procuring a product or service from a third-party vendor? Maybe consumers expect or should expect a “let the buyer beware” marketplace when shopping for mortgage loans against which mandated disclosures are designed to inform consumers of the risks? The requirement that lenders determine a borrower’s ability to repay a loan is a form of duty of care because it obligates the lender to go beyond an analysis of whether a lender had mitigated for itself the risk of a borrower’s default and subsequent credit risk of loss. Protecting an overreaching borrower from obtaining a loan he or she cannot afford is both an underwriting issue and a duty of care issue. The earlier discussed House and Senate bills, as well as many state laws, seek to impose additional duties either explicitly or implicitly. The new HOEPA regulations did not impose an explicit duty of care on lenders or brokers. The Senate bill imposes an explicit duty on loan originators, a term which appears to include both mortgage brokers and mortgage lenders. The bill obligates originators to “act with reasonable skill, care and diligence” and to “act in good faith with fair dealing in any transaction, practice or course of business in connection with the origination of any home mortgage loans.” This open-ended mandate is an invitation to sue an originator for any real or imagined slight in the loan origination process. Other obligations under the Senate bill are more specific and less generic. For example, it obligates a loan originator to make reasonable efforts to secure a home mortgage loan that is “appropriately advantageous” to the borrower, considering all of the circumstances. This is akin to the many anti-predatory state laws prohibiting lenders from making loans that do not provide the borrower with a “net tangible benefit” in light of the totality of circumstances. It also prohibits a lender from steering a borrower to a loan with rates, charges, principal amount or prepayment terms that are more costly than that for which the consumer qualifies. The House bill imposes fewer substantive obligations on loan originators than the Senate bill, and defines the term “loan originator” in a way that appears to exclude mortgage lenders. It does not impose general duties of care, but the new obligations to which loan originators would be subject smack of a duty of care. Mortgage originators would be required to work diligently to present the consumer with a range of residential mortgage loan products for which the consumer likely qualifies and which are appropriate to the consumer’s existing circumstances. The duty to offer “appropriate” loans would be presumed to be satisfied if the originator determines in good faith that the borrower has a reasonable ability to repay and, in the case of a refinance, that the borrower will receive a net tangible benefit. The new HOEPA rules do not go beyond an ability-torepay requirement in imposing a form of duty of care on loan originators. Whether the duty is explicit or implicit or specific or general, the duty itself requires a subjective judgment about what is good for another. Reasonable people can disagree, and the proposed laws leave no room for errors in judgment made in good faith. If in hindsight the lender’s judgment proves to be wrong, the lender-and in some cases, the holder of the loan--can be subjected to material claims. Remedies for violations So how does a law impose enhanced protections for higher-cost loans but maintain a sense of proportionality so the punishment fits the crime and the consumer does not reap an unearned economic windfall? That’s the conundrum facing public policymakers. Consumer advocates and regulators can pontificate all they want on the need for everyone in the loan food chain to remain responsible for legal violations; if the legal risks of loss are perceived to be excessive, however, the industry simply will not invest its capital. There is little argument that a wrongdoer should be required to reimburse a victim for actual damages. The question is whether a borrower deserves more and, if so, who should pay? Violations of HOEPA subject the originating lender to 1) actual damages; 2) statutory damages capped at $2,000 ($4,000 as of Oct. 1, 2009) for individual actions and the lesser of $500,000 and 1 percent of the November 2008 | 6 Mortgage Banking & Consumer Credit Alert net worth of the creditor; and 3) enhanced damages in an amount equal to the sum of all finance charges and fees paid by the consumer, unless the creditor determines that the failure to comply is not material. The first two elements of money damages apply to all TILA violations. HOEPA adds enhanced damages for legal violations. It also authorizes aggrieved borrowers to assert against the assignee all claims and defenses that he or she could assert against the creditor, including claims that may arise under laws other than HOEPA, although such other claims are subject to a separate but substantial damage cap. Should the remedies for higher-cost loans be the same? Both the House bill and the Senate bill would increase the ceiling for statutory damages for any TILA violation. The Senate version provides a larger increase to $5,000 for individual claims and $5 million for class actions with annual adjustments. The House bill would not extend enhanced damages to higher-cost loans, but the Senate bill would. The new HOEPA rules issued by the Fed also extend enhanced damages to highercost loans. Rescission is an extraordinary remedy. It extinguishes the loan and requires the creditor or assignee to return to the borrower all amounts that he or she has paid in exchange for the return of the outstanding principal by the borrower. TILA and HOEPA provide the remedy of rescission for certain disclosure violations, not for substantive violations. The House and Senate bills empower consumers to seek rescission for substantive violations involving higher-cost loans. Violations of the underwriting requirements of the House bill may lead to rescission, although there is a hefty cure right embedded in the bill. Under the Senate bill, rescission is available for any violation of the bill’s broad loan origination requirements without any extended cure rights. Except in one limited circumstance, the new HOEPA rules issued by the Fed for higher-cost loans do not appear to provide the remedy of rescission for violations. What hammered the nail into the coffin for high-cost loans under HOEPA was broad assignee liability. Whatever words the policymakers utter regarding their commitment to a vibrant but responsible subprime market, the industry will avoid higher-cost loans if there is expansive assignee liability. The Senate bill provides for broad assignee liability for virtually any violation by a loan originator; the liability extends to both monetary damages and rescission. The House bill limits assignee liability to the remedy of rescission against assignees up to, but not including, securitization trusts, with certain exceptions; money damage claims may not be asserted against assignees under the House bill. The HOEPA rules do not impose assignee liability for the requirements relating to higher-cost loans. As you can see, there is no consensus among policymakers regarding the extent to which assignees should be obligated to police the market or face material risk of loss for the acts, errors or omissions of others. It is an interesting but ultimately irrelevant debate in the sense that no law can force an investor to risk its capital to make mortgage investments that can evaporate without regard to the fault of the purchaser. Regardless of who really is to blame and to what degree, no well-intentioned law can force the industry to reinvest in a market with risks that are not commensurate with the rewards. To date, the credit risk of loss is enough of a reason for the subprime market not to return. At some point, the market will stabilize and borrowers with troubled credit histories will need residential mortgage loans. Whether private industry will be the source for those loans will depend on the willingness of Congress to create a legal framework that balances the legitimate interests of borrowers and the industry. The Fed tried to do that in its more nuanced approach under the HOEPA regulations. Time will tell whether Congress feels the need to scrap the regulations and enact more restrictive laws. Originally published in the October 2008 Mortgage Banking magazine November 2008 | 7 Mortgage Banking & Consumer Credit Alert K&L Gates’ Mortgage Banking & Consumer Finance practice provides a comprehensive range of transactional, regulatory compliance, enforcement and litigation services to the lending and settlement service industry. Our focus includes first- and subordinate-lien, open- and closed-end residential mortgage loans, as well as multi-family and commercial mortgage loans. We also advise clients on direct and indirect automobile, and manufactured housing finance relationships. In addition, we handle unsecured consumer and commercial lending. In all areas, our practice includes traditional and e-commerce applications of current law governing the fields of mortgage banking and consumer finance. For more information, please contact one of the professionals listed below. LAWYERS Boston R. Bruce Allensworth Irene C. Freidel Stephen E. Moore Stanley V. Ragalevsky Nadya N. Fitisenko Brian M. 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