Credit Card Penalty Fees (Regulation Z), 18906-18951 [2023-02393]
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Federal Register / Vol. 88, No. 60 / Wednesday, March 29, 2023 / Proposed Rules
CONSUMER FINANCIAL PROTECTION
BUREAU
12 CFR Part 1026
[Docket No. CFPB–2023–0010]
RIN 3170–AB15
Credit Card Penalty Fees (Regulation
Z)
Consumer Financial Protection
Bureau.
ACTION: Proposed rule with request for
public comment.
AGENCY:
The Consumer Financial
Protection Bureau (Bureau) proposes to
amend Regulation Z, which implements
the Truth in Lending Act (TILA), to
better ensure that the late fees charged
on credit card accounts are ‘‘reasonable
and proportional’’ to the late payment as
required under TILA. The proposal
would adjust the safe harbor dollar
amount for late fees to $8 and eliminate
a higher safe harbor dollar amount for
late fees for subsequent violations of the
same type; provide that the current
provision that provides for annual
inflation adjustments for the safe harbor
dollar amounts would not apply to the
late fee safe harbor amount; and provide
that late fee amounts must not exceed
25 percent of the required payment.
DATES: Comments should be received on
or before May 3, 2023.
ADDRESSES: You may submit comments,
identified by Docket No. CFPB–2023–
0010 or RIN 3170–AB15, by any of the
following methods:
• Federal eRulemaking Portal:
https://www.regulations.gov. Follow the
instructions for submitting comments.
• Email: 2023-NPRMCreditCardLateFees@cfpb.gov. Include
Docket No. CFPB–2023–0010 or RIN
3170–AB15 in the subject line of the
message.
• Mail/Hand Delivery/Courier:
Comment Intake—2023 NPRM Credit
Card Late Fees, c/o Legal Division
Docket Manager, Consumer Financial
Protection Bureau, 1700 G Street NW,
Washington, DC 20552. Because paper
mail in the Washington, DC area and at
the Bureau is subject to delay,
commenters are encouraged to submit
comments electronically.
Instructions: The Bureau encourages
the early submission of comments. All
submissions should include the agency
name and docket number or Regulatory
Information Number (RIN) for this
rulemaking. In general, comments
received will be posted without change
to https://www.regulations.gov. All
comments, including attachments and
other supporting materials, will become
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SUMMARY:
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part of the public record and subject to
public disclosure. Proprietary
information or sensitive personal
information, such as account numbers
or Social Security numbers, or names of
other individuals, should not be
included. Comments will not be edited
to remove any identifying or contact
information.
FOR FURTHER INFORMATION CONTACT:
Adrien Fernandez, Counsel, Krista
Ayoub and Steve Wrone, Senior
Counsels, Office of Regulations, at 202–
435–7700. If you require this document
in an alternative electronic format,
please contact CFPB_Accessibility@
cfpb.gov.
SUPPLEMENTARY INFORMATION:
I. Summary of the Proposed Rule
The Bureau proposes to amend
provisions in § 1026.52(b) and its
accompanying commentary as they
relate to credit card late fees.1 Currently,
under § 1026.52(b)(1), a card issuer must
not impose a fee for violating the terms
or other requirements of a credit card
account under an open-end consumer
credit plan, such as a late payment,
exceeding the credit limit, or returned
payments, unless the issuer has
determined that the dollar amount of
the fee represents a reasonable
proportion of the total costs incurred by
the issuer for that type of violation as set
forth in § 1026.52(b)(1)(i) or complies
with the safe harbor provisions set forth
in § 1026.52(b)(1)(ii). Section
1026.52(b)(1)(ii) currently sets forth a
safe harbor of $30 generally for penalty
fees, except that it sets forth a safe
harbor of $41 for each subsequent
violation of the same type that occurs
during the same billing cycle or in one
of the next six billing cycles.2 The
1 When amending commentary, the Office of the
Federal Register (OFR) requires reprinting of certain
subsections being amended in their entirety rather
than providing more targeted amendatory
instructions. The sections of regulatory text and
commentary included in this document show the
language of those sections if the Bureau adopts its
changes as proposed. In addition, the Bureau is
releasing an unofficial, informal redline to assist
industry and other stakeholders in reviewing the
changes that it proposes to make to the regulatory
text and commentary of Regulation Z. This redline
can be found on the Bureau’s website, https://
files.consumerfinance.gov/f/documents/cfpb_2023credit-card-late-fees-proposed-rule_unofficialredline_2023-01.pdf. If any conflicts exist between
the redline and the text of Regulation Z, its
commentary, or this proposed rule, the documents
published in the Federal Register are the
controlling documents.
2 Although the safe harbors discussed above
apply to charge card accounts, § 1026.52(b)(1)(ii)
provides an additional safe harbor when a charge
card account becomes seriously delinquent.
Specifically, § 1026.52(b)(1)(ii)(C) provides that,
when a card issuer has not received the required
payment for two or more consecutive billing cycles
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Bureau is concerned that (1) the safe
harbor dollar amounts for late fees
currently set forth in § 1026.52(b)(1)(ii)
are not reasonable and proportional to
the omission or violation to which the
fee relates; (2) the current higher safe
harbor threshold for late fees for
subsequent violations of the same type
in the same billing cycle or in one of the
next six billing cycles is higher than is
justified based on consumer conduct
and to deter future violations and,
indeed, a late fee that is too high could
interfere with the consumers’ ability to
make future payments on the account;
and (3) additional restrictions on late
fees may be needed to ensure that late
fees are reasonable and proportional.
Because late fees are by far the most
prevalent penalty fees charged by card
issuers and the Bureau’s current data
primarily relates to late fees, the
Bureau’s proposed changes to the
restrictions in § 1026.52(b) are limited to
late fees at this time, although the
Bureau seeks comments on whether the
proposed amendments should apply to
other penalty fees.
The proposal would amend
§ 1026.52(b) and its accompanying
commentary to help ensure that late fees
are reasonable and proportional. First,
the proposal would amend
§ 1026.52(b)(1)(ii) to lower the safe
harbor dollar amount for late fees to $8
and to no longer apply to late fees a
higher safe harbor dollar amount for
subsequent violations of the same type
that occur during the same billing cycle
or in one of the next six billing cycles.3
Second, the proposal would provide
that the current provision in
§ 1026.52(b)(1)(ii)(D) that provides for
annual inflation adjustments for the safe
harbor dollar amounts would not apply
to the safe harbor amount for late fees.
Third, the proposal would amend
§ 1026.52(b)(2)(i)(A) to provide that late
fee amounts must not exceed 25 percent
of the required payment; currently, late
fee amounts must not exceed 100
percent. The proposal also would
amend comments 7(b)(11)–4, 52(a)(1)–
1.i and iv, and 60(a)(2)–5.ii to revise
current examples of late fee amounts to
be consistent with the proposed $8 safe
harbor late fee amount discussed above.
The Bureau also solicits comment on
whether card issuers should be
prohibited from imposing late fees on
consumers that make the required
on a charge card account that requires payment of
outstanding balances in full at the end of each
billing cycle, it may impose a late payment fee that
does not exceed 3 percent of the delinquent
balance.
3 The proposal would not amend the safe harbor
set forth in § 1026.52(b)(1)(ii)(C) applicable to
charge card accounts.
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payment within 15 calendar days
following the due date. In addition, the
Bureau seeks comment on whether, as a
condition of using the safe harbor for
late fees, it may be appropriate to
require card issuers to offer automatic
payment options (such as for the
minimum payment amount), or to
provide notification of the payment due
date within a certain number of days
prior to the due date, or both.
The Bureau proposes one clarification
that would apply to penalty fees
generally. Specifically, the proposal
would amend comment 52(b)(1)(i)–2.i to
clarify that costs for purposes of the cost
analysis provisions in § 1026.52(b)(1)(i)
for determining penalty fee amounts do
not include any collection costs that are
incurred after an account is charged off
pursuant to loan loss provisions. In
addition, the Bureau solicits comment
on several issues related to penalty fees
generally. First, the Bureau solicits
comment on whether the same or
similar changes described above should
be applied to other penalty fees, such as
over-the-limit fees, returned-payment
fees, and declined access check fees, or
in the alternative, whether the Bureau
should finalize the proposed safe harbor
for late fees and eliminate the safe
harbors for other penalty fees. Second,
the Bureau solicits comment on whether
instead of revising the safe harbor
provisions set forth in § 1026.52(b)(1)(ii)
as they apply to late fees as discussed
above, the Bureau should instead
eliminate the safe harbor provisions in
§ 1026.52(b)(1)(ii) for late fees or should
instead eliminate the safe harbor for all
penalty fees, including late fees, overthe-limit fees, returned-payment fees,
and declined access check fees. If the
safe harbor provisions were eliminated,
card issuers would need to use the cost
analysis provisions set forth in
§ 1026.52(b)(1)(i) to determine the
amount of the penalty fees (subject to
the limitations in § 1026.52(b)(2)). The
Bureau also solicits comment on
whether, in that event, the cost analysis
provisions would need to be amended
and, if so, how.
II. Background
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A. The CARD Act
The Credit Card Accountability
Responsibility and Disclosure Act of
2009 (CARD Act) was signed into law
on May 22, 2009.4 The CARD Act
primarily amended TILA 5 and
instituted new substantive and
disclosure requirements to establish fair
and transparent practices for open-end
4 Public
5 15
Law 111–24, 123 Stat. 1734 (2009).
U.S.C. 1601 et seq.
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consumer credit plans. The CARD Act
added TILA section 149, which
provides, among other things, that the
amount of any penalty fee with respect
to a credit card account under an openend consumer credit plan in connection
with any omission with respect to, or
violation of, the cardholder agreement,
including any late payment fee or any
other penalty fee or charge, must be
‘‘reasonable and proportional’’ to such
omission or violation.6
At the time of its passage, the CARD
Act required the Board of Governors of
the Federal Reserve System (Board) to
issue rules establishing standards for
assessing the reasonableness and
proportionality of such penalty fees.7 In
issuing these rules, the CARD Act
required the Board to consider (1) the
cost incurred by the creditor from an
omission or violation; (2) the deterrence
of omissions or violations by the
cardholder; (3) the conduct of the
cardholder; and (4) such other factors
deemed necessary or appropriate by the
Board.8 The CARD Act authorized the
Board to establish different standards
for different types of fees and charges,
as appropriate.9 The CARD Act also
granted the Board discretion to provide
an amount for any penalty fee or charge
that is presumed to be reasonable and
proportional to the omission or
violation to which the fee or charge
relates.10 As discussed in more detail
below, the authority to implement TILA,
including TILA section 149, transferred
from the Board to the Bureau in 2011.
B. The Board’s Implementing Rule
On June 29, 2010, the Board issued a
final rule implementing new TILA
section 149 in its Regulation Z, 12 CFR
226.52(b) (2010 Final Rule).11 The
Board’s Regulation Z, § 226.52(b)
provided that a card issuer must not
impose a fee for violating the terms or
other requirements of a credit card
account, such as a late payment,
exceeding the credit limit, or returned
payments, unless the issuer has
determined that the dollar amount of
the fee represents a reasonable
proportion of the total costs incurred by
the issuer for that type of violation as set
forth in § 226.52(b)(1)(i) or complies
with the safe harbor provisions set forth
6 CARD Act section 102, 123 Stat. 1740 (15 U.S.C.
1665d(a)).
7 CARD Act section 102, 123 Stat. 1740 (15 U.S.C.
1665d(b)).
8 CARD Act section 102, 123 Stat. 1740 (15 U.S.C.
1665d(c)).
9 CARD Act section 102, 123 Stat. 1740 (15 U.S.C.
(1665d(d)).
10 CARD Act section 102, 123 Stat. 1740 (15
U.S.C. (1665d(e)).
11 75 FR 37526 (June 29, 2010).
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in § 226.52(b)(1)(ii).12 The Board set the
safe harbor amounts in § 226.52(b)(1)(ii)
at $25 generally for penalty fees, except
that it set forth a safe harbor of $35 for
each subsequent violation of the same
type that occurs during the same billing
cycle or in one of the next six billing
cycles.13 Although the safe harbors
discussed above applied to charge card
accounts, the Board’s Regulation Z,
§ 226.52(b)(1)(ii) also provided an
additional safe harbor when a charge
card account becomes seriously
delinquent. Specifically,
§ 226.52(b)(1)(ii)(C) provided that, when
a card issuer has not received the
required payment for two or more
consecutive billing cycles on a charge
card account that requires payment of
outstanding balances in full at the end
of each billing cycle, it may impose a
late payment fee that does not exceed 3
percent of the delinquent balance.14 The
Board’s Regulation Z,
§ 226.52(b)(1)(ii)(D) provided that the
safe harbor dollar amounts would be
adjusted annually to the extent that
changes in the Consumer Price Index
(CPI) would result in an increase or
decrease of $1.15
The Board’s Regulation Z,
§ 226.52(b)(2) also contained other
restrictions on card issuers for imposing
penalty fees. Specifically,
§ 226.52(b)(2)(i) prohibited issuers from
imposing penalty fees that exceed the
dollar amount associated with the
violation.16 In addition,
§ 226.52(b)(2)(ii) prohibited issuers from
imposing multiple penalty fees based on
a single event or transaction.17
C. Transfer of Authority for TILA to the
Bureau and the Bureau’s Rule
The Board’s 2010 Final Rule
implementing TILA section 149 took
effect on August 22, 2010.18 Nearly one
year later, on July 21, 2011, the Board’s
rulemaking authority to implement the
provisions of TILA, including TILA
section 149, transferred to the Bureau
pursuant to sections 1061 and 1100A of
the Dodd-Frank Wall Street Reform and
Consumer Protection Act (Dodd-Frank
Act).19
On December 22, 2011, the Bureau
issued an interim final rule issuing its
Regulation Z, 12 CFR part 1026, to
reflect its assumption of rulemaking
12 12
CFR 226.52(b)(1).
CFR 226.52(b)(1)(ii)(A) and (B).
14 12 CFR 226.52(b)(1)(ii)(C).
15 12 CFR 226.52(b)(1)(ii)(D).
16 12 CFR 226.52(b)(2)(i).
17 12 CFR 226.52(b)(2)(ii).
18 75 FR 37526, 37526 (June 29, 2010).
19 Public Law 111–203, 124 Stat. 1376 (2010).
13 12
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authority over TILA.20 As set forth in
the interim final rule, the Bureau’s
Regulation Z, § 1026.52(b) contained the
same restrictions on penalty fees as set
forth in the Board’s Regulation Z,
§ 226.52(b).21
Since then, consistent with
§ 1026.52(b)(1)(ii)(D), the Bureau has
adjusted the dollar amounts of the safe
harbor threshold amounts to reflect
changes in the CPI in effect as of June
1 of that year.22 Section 1026.52(b)(1)(ii)
currently sets forth a safe harbor of $30
generally for penalty fees, except that it
sets forth a safe harbor of $41 for each
subsequent violation of the same type
that occur during the same billing cycle
or in one of the next six billing cycles.23
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D. A Decade of the Late Fee Safe Harbor
In the wake of the Board’s and the
Bureau’s implementation of TILA
section 149, late fees represent almost
all penalty fee volume on credit cards,
as overlimit fees are now practically
nonexistent and fees for returned
payments account for a negligible share
based on Y–14+ data collected from a
group of mass market and specialized
issuers.24
Prior to the passage of the CARD Act
in 2009, the average late fee was $33 for
issuers in the Bureau’s Credit Card
Database (CCDB) which includes
information on the full consumer and
small business credit card portfolios of
large credit card lenders, covering
approximately 85 percent of all credit
card accounts in the U.S. between April
2008 and April 2016.25 With the
effective date of the safe harbor
threshold amounts in 2010, the average
late fee in the CCDB declined by over
$10 to $23 in the fourth quarter of
2010.26
However, from 2010 through the onset
of the COVID–19 pandemic, issuers had
20 76 FR 79768 (Dec. 22, 2011); see also 81 FR
25323 (Apr. 28, 2016).
21 76 FR at 79822.
22 Comment 52(b)(1)(ii)–2.
23 See supra note 2 for a description of an
additional safe harbor that applies to charge card
accounts.
24 Bureau of Consumer Fin. Prot., Credit Card
Late Fees, at 13 (Mar. 2022) (Late Fee Report),
https://files.consumerfinance.gov/f/documents/
cfpb_credit-card-late-fees_report_2022-03.pdf. See
part III.C for a description of the Y–14+ data.
25 Bureau of Consumer Fin. Prot., Card Act
Report, at 23 (Oct. 2013) (2013 Report), https://
files.consumerfinance.gov/f/201309_cfpb_card-actreport.pdf. From 2008 to 2015, the Bureau used the
CCDB to measure the amount of average late fees
to include in the CARD Act reports that the Bureau
releases every two years. In its 2017 report, the
Bureau started using the Y–14 data to measure the
amount of average late fees to include in its CARD
Act reports and began using the Y–14+ data to
calculate metrics including average late fee
beginning with its 2019 report. See part III.C for a
description of the Y–14 and Y–14+ data.
26 Id.
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steadily been charging consumers more
in credit card late fees each year—
peaking at over $14 billion in total late
fee volume for issuers contained in the
Y–14+ data in 2019.27 At the end of
2012, the average late fee for major
issuers in the CCDB reached about
$27.28 It remained at about that level
until rising to $28 in 2018 for issuers in
the Y–14+, consistent with the first safe
harbor adjustment for inflation in
2014.29 In 2019, the average late fee
charged by credit card issuers in the Y–
14+ rose to $31, approaching nominal
pre-CARD Act levels.30 The total
volume of late fees assessed by issuers
in the Y–14+ declined to about $12
billion in 2020 given record-high
payment rates and public and private
relief efforts.31
E. Credit Card Issuers’ Use of the Late
Fee Safe Harbor
Currently, § 1026.52(b)(1)(ii) sets forth
a safe harbor of $30 generally for a late
payment, except that it sets forth a safe
harbor of $41 for each subsequent late
payment within the next six billing
cycles. A card issuer is not required to
use the cost analysis provisions in
§ 1026.52(b)(1)(i) to determine the
amount of late fees if it complies with
these safe harbor amounts.32
An analysis of credit card agreements
found no evidence of any issuers using
the cost analysis provisions to charge an
amount higher than the safe harbor.33
Most large issuers have taken advantage
of the increased safe harbors as adjusted
for inflation by increasing their fee
amounts.34 Eighteen of the top 20
issuers by outstanding balances
contracted a maximum late fee at or
near the higher safe harbor amount of
$40 in 2020 based on analysis of the
maximum late fee disclosed by an
institution in agreements submitted to
the Bureau’s Credit Card Agreement
Database in the fourth quarter of that
year.35 Yet, the most common maximum
late fee disclosed in agreements
submitted to the Bureau was $25, as
27 Late
Fee Report, at 4.
Report, at 23.
29 Bureau of Consumer Fin. Prot., The Consumer
Credit Card Market, at 69 (Dec. 2019) (2019 Report),
https://files.consumerfinance.gov/f/documents/
cfpb_consumer-credit-card-market-report_2019.pdf.
30 Late Fee Report, at 6.
31 Late Fee Report, at 5; Bureau of Consumer Fin.
Prot., The Consumer Credit Card Market, at 117
(Sept. 2021) (2021 Report), https://files.consumer
finance.gov/f/documents/cfpb_consumer-creditcard-market-report_2021.pdf.
32 See comment 52(b)(1)–1.i.A.
33 Late Fee Report, at 14.
34 Id.
35 Id. The Credit Card Agreement Database is
available at https://www.consumerfinance.gov/
credit-cards/agreements.
28 2013
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driven by the practices of smaller banks
and credit unions not in the top 20
issuers by asset size.36 Finally, a small
but growing number of issuers offer
credit card products with no late fees.37
Some card issuers, however, may be
disincentivized to lower late fee
amounts below the safe harbor, given
that the industry as a whole continues
to rely on late fees as a source of
revenue and many consumers may not
shop for credit cards based on the
amount of the late fee. For banks in the
Y–14+ data, late fees represented 10
percent of charges to consumers in
2020, but individual card issuers’
revenue from late fees varied.38 The
share of late fees for individual issuers
in the Y–14+ data ranged from a
minimum of four percent to a maximum
of 31 percent of total consumer charges
in 2019. Among issuers there is a strong
correlation between reliance on late fees
and concentration of subprime
accounts. Yet, the industry as a whole
continues to rely on late fees as a source
of revenue.39 Given the amount of
revenue that late fees generate, card
issuers may not have an incentive to
charge late fees lower than the safe
harbor amount.
In addition, many consumers may not
shop for credit cards based on the
amount of late fees, which also may
lessen card issuers incentive to charge
late fees lower than the safe harbor
amount. Survey data suggest that other
factors, such as rewards, annual fees,
and annual percentage rate(s) (APR),
drive credit card usage.40 In addition,
recent academic work 41 directly
observed that credit card offers highlight
rewards, annual fees, and APRs more
than late fees based on the position of
the information and the size of the font.
Only 6.06 percent of the 611,797 card
offers in their data spanning from 1999
to 2007 mentioned late fees on the front
page, with an average font size of 9.56.
In contrast, (1) rewards were displayed
on the front page 93.68 to 100 percent
of the time (depending on the type of
rewards) with an average font size of
12.12 to 16.56; (2) the annual fee was
disclosed on the front page 78.02
percent of the time with an average font
size of 13.39; and (3) APRs were
displayed on the front page 27.95
36 Late
Fee Report, at 14.
at 15.
38 Id. at 13.
39 Id. at 14.
40 Karen Augustine, U.S. Consumers and Credit:
Rising Usage, Mercator Advisory Group, at 40
(2018).
41 Hong Ru & Antoinette Schoar, Do Credit Card
Companies Screen for Behavioural Biases? (Feb. 12,
2020), BIS Working Paper No. 842, https://
ssrn.com/abstract=3549532.
37 Id.
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assessed, the loss of a grace period 51
and coinciding interest charges may
pose a similar or even greater burden
than the late fee itself. For cardholders
who regularly revolve a balance from
one month to the next, a late fee is the
main financial consequence of a missed
payment if the payment is made prior to
the next statement due date, as the
additional interest charges on the
unpaid minimum amount due for a
F. Consumer Impact of Late Fees
limited number of days will likely be
Late fees represent over one-tenth of
minimal.
the $120 billion issuers charge to
However, if a consumer does not
consumers in interest and fees, totaling
make at least the minimum payment
over $14 billion in 2019.44 A small share due for more than one billing cycle,
of accounts in low credit score tiers
non-payment may carry more severe
incur a high proportion of late fees.45
consequences. After approximately 30
Overall, the average deep subprime
days, consumers’ credit scores may
account in the Y–14 data (discussed in
decline after issuers report the
part III.C) was charged $138 in late fees
delinquency to credit bureaus. A card
in 2019, compared with $11 for the
issuer also may take actions to reprice
average superprime account.46 The
new transactions on the account
higher incidence of late fees for
according to a penalty rate, if permitted
accounts in lower tiers, combined with
under § 1026.55(b)(3).52 After 60 days,
higher average charges for repeat late
issuers may take action to reprice the
fees within six billing cycles of the
entire outstanding balance on the
initial late fee, drives this disparity.47
account according to a penalty rate, if
Credit card accounts in the Y–14 data permitted under § 1026.55(b)(4). At any
held by cardholders living in the U.S.’
point as an account becomes more
poorest neighborhoods paid twice as
delinquent, an issuer may take steps to
much on average in total late fees than
reduce a cardholder’s credit line or
those in the richest areas.48 Cardholders suspend use of the card, limit their
in majority-Black areas paid more in late earning or redemption of rewards, or
fees for each card they held with major
increase outreach to collect the
credit card issuers in 2019 than majority outstanding debt. After 180 days of
white areas.49 And people in areas with delinquency, an issuer will typically
the lowest rates of economic mobility
close and charge off the credit card
paid nearly $10 more in late fee charges account which may carry a large and
per account compared to people in areas long-term financial penalty for a
with the highest rates of economic
consumer.
mobility.50
III. Summary of Rulemaking Process
G. Other Consequences to Consumers of
A. Advance Notice of Proposed
Late Payment
Rulemaking
When a consumer does not make at
On June 22, 2022, the Bureau issued
least the minimum payment by the
an
advance notice of proposed
periodic statement due date, a late fee
rulemaking (ANPR) seeking information
may not be the only consequence.
However, the effect of a missed payment from credit card issuers, consumer
groups, and the public regarding credit
depends on cardholder conduct both
card late fees and late payments, and
prior to and after the due date.
card issuers’ revenue and expenses.53
For cardholders who typically pay
Areas of inquiry included: (1) factors
their balance in full every month (soused by card issuers to set late fee
called transactors), a late payment
generally means both a late fee and new amounts; (2) card issuers’ costs and
interest incurred for carrying or
51 A grace period is a period within which credit
revolving a balance. For the cardholders
extended may be repaid without incurring a finance
who do not roll over a balance in the
charge due to a periodic interest rate. See, e.g.,
month before or after a late fee is
§ 1026.6(b)(2)(v) and comments 5(b)(2)(ii)–3.i and
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percent of the time with an average font
size of 13.02. The Bureau notes that the
authors of the study explained that they
excluded the post-2007 data ‘‘to abstract
from the impact of the 2008 financial
crisis and the [CARD Act] in 2009.’’ 42
However, the authors also stated that
‘‘the main results are qualitatively and
quantitatively very similar if we include
data until 2016.’’ 43
42 Id.
54(a)(1)–2.
52 If a consumer does not make the required
payment by the due date, § 1026.55(b)(3) permits a
card issuer to take actions to reprice new
transactions on the account according to a penalty
rate in certain circumstances. The Bureau
understands, however, that most card issuers do not
take actions to reprice new transactions to the
penalty rate until the consumer is more than 60
days late. 2021 Report, at 51.
53 87 FR 38679 (June 29, 2022).
at 12.
43 Id.
44 Late
Fee Report, at 4.
at 7.
46 Id. at 8.
47 Id.
48 Id. at 9.
49 Id. at 10.
50 Id. at 11.
45 Id.
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losses associated with late payments; (3)
the deterrent effects of late fees; (4)
cardholders’ late payment behavior; (5)
methods that card issuers use to
facilitate or encourage timely payments,
including automatic payment and
notifications; (6) card issuers’ use of the
late fee safe harbor provisions in
Regulation Z; and (7) card issuers’
revenue and expenses related to their
domestic consumer credit card
operations. The Bureau received 43
comments in response to the ANPR.
Consumer group commenters
generally recommended that the Bureau:
(1) more closely tailor late fees to the
amount of the debt owed by the
cardholder, such as by establishing a
sliding scale for the safe harbor amount
so that late fees are proportional to the
account balance and by capping the
amount of late fees that can be imposed
for an account during the year; (2)
require a mandatory waiting period of
several days before a late fee can be
assessed; (3) decline to incorporate
deterrence as a factor in setting late fee
rules and safe harbor amounts; (4)
consider the savings to issuers of
providing online-only statements in
determining the costs of collecting late
payments, (5) require a postal mail
notification before a late fee can be
imposed for an online-only account; and
(6) exclude the costs of being a furnisher
of information to consumer reporting
agencies from the costs of collecting late
payments.
Card issuers and their trade groups
that commented on the ANPR generally
opposed revisions to Regulation Z’s safe
harbor provisions related to late fees,
including lowering the safe harbor
amounts. Several industry trade groups
asserted that although the current safe
harbor amounts do not cover all the
costs associated with late payments and
are not as effective a deterrent as higher
fees would be, they cover a significant
portion of issuer costs, deter late
payments, and provide legal certainty to
card issuers. Card issuers and trade
group commenters, however, did not
provide detailed information on the
type of costs, and the dollar amount of
the costs, they incur to collect late
payments. Card issuers and their trade
groups commenters also generally
opposed eliminating the safe harbor
provisions and requiring card issuers to
use the cost analysis provisions in
§ 1026.52(b)(1)(i) to determine the
amount of late fees a card issuer is
permitted to charge. Several industry
trade group commenters asserted that
reducing or eliminating the safe harbor
would reduce credit access and increase
the cost of credit. One trade group
commenter asserted that smaller
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creditors and community banks,
particularly those that extend credit to
consumers who are trying to build or
repair their credit, have proportionately
higher compliance costs and would face
the most risk if the safe harbor was
reduced or eliminated, limiting their
ability to continue to offer credit
products at the same terms. Several
industry trade group commenters also
asserted that because lowering the safe
harbor would have a significant impact
on small financial institutions, the
Bureau must comply with the Small
Business Regulatory Enforcement
Fairness Act (SBREFA) by convening a
SBREFA panel in any late fee
rulemaking. Several industry trade
group commenters also indicated that if
the safe harbor were eliminated, the
Bureau would need to provide
significantly more detail and clarity
around the costs included in the late fee
amount calculation under
§ 1026.52(b)(1)(i).
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B. CARD Act Consultation With Certain
Federal Agencies
Consistent with the CARD Act, the
Bureau consulted with the following
agencies regarding rules that implement
TILA section 149: (1) the Comptroller of
the Currency; (2) the Board of Directors
of the Federal Deposit Insurance
Corporation; and (3) the National Credit
Union Administration Board.54 The
Bureau also consulted with the Board
and several other federal agencies, as
discussed in part VII.
C. Y–14 Data Considered for This
Proposal
As discussed in more detail in the
section-by-section analysis in part V, the
Bureau has considered data in
developing this proposal that the Board
collects as part of its Y–14M (Y–14)
data. Since June 2012, the Board has
collected these data monthly from bank
holding companies with total
consolidated assets exceeding $50
billion. For this collection, surveyed
financial institutions report
comprehensive data on their assets on
the last business day of each calendar
month. These data are used to support
the Board’s supervisory stress test
models and provide one source of data
for the Bureau’s biennial report to
Congress on the consumer credit card
market.55 These data contain reported
54 15
U.S.C. 1665d(b) and 1665d(e).
Bd. of Governors. of the Fed. Rsrv. Sys.,
Report Forms FR Y–14M, https://www.federal
reserve.gov/apps/reportforms/reportdetail.
aspx?sOoYJ+5BzDYnbIw+U9pka3sMtCMopzoV (for
more information on the Y–14M collection). The
Bureau is one of several government agencies with
whom the Board shares the data. Information in the
55 See
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information on the following four
metrics used in developing this
proposal:
Late Fee Income: Reported net fee
income assessed for late or nonpayment
accounts in a given domestic credit card
portfolio by card type (e.g., general
purpose or private label). This is late fee
income for the Bureau’s purposes, as
discussed in the section-by-section
analysis of § 1026.52(b)(1)(ii).
Collection Costs: Reported costs
incurred to collect problem credits that
include the total collection cost of
delinquent, recovery, and bankrupt
accounts. Issuers report these aggregate
costs monthly for their domestic credit
card portfolios and separately by credit
card type.56 These reported costs do not
include losses and associated costs.57
Late Fee Amount: Reported amount of
the late fee charged on a particular
account in a particular month.
Total Required Payments: Reported
total payment amount on a particular
account in a particular month, including
any missed payments or fees that were
required to be paid in a particular
billing cycle. This typically includes the
minimum payment due, past due
payments, and any amount reported as
over the credit limit.
The Y–14 data received by the Bureau
cover the period from the middle of
2012 through September 2022 and are
provided by issuers that accounted for
just under 70 percent of outstanding
balances on U.S. consumer credit cards
as of year-end 2020. For the purposes of
the analysis using these data as
described in part V, the Bureau only
considered account- and portfolio-level
data for issuers in a given month for
consumer general purpose and private
label credit cards for which there
existed data on late fee income,
collection costs, late fee amounts, and
total required payments in the Y–14
data. With respect to credit card data,
the Bureau receives the complete
portfolio data (including late fee income
and collection costs) for all the card
issuers included in the data collection.
The Bureau receives only a random 40
percent subsample of account
information (including late fee amounts
and total required payments) reported
by card issuers included in the data
collection.
Y–14 data do not include any personal identifiers.
Additionally, accounts associated with the same
consumer are not linked across or within issuers.
The Y–14 data also does not include transactionlevel data pertaining to consumer purchases.
56 Types include General Purpose, Private Label,
Business, and Corporate cards.
57 Issuers report projected losses, the dollar
amount of charge-offs and any associated
recoveries, interest expense, and loan loss
provisions separately.
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Collection costs in the Y–14 data
include both pre-charge-off and postcharge-off collection costs. As discussed
in the section-by-section analysis of
§ 1026.52(b)(1)(i), the Bureau proposes
to amend comment 52(b)(1)(i)–2.i to
clarify that costs for purposes of the cost
analysis provisions in § 1026.52(b)(1)(i)
for determining penalty fee amounts do
not include any collection costs that are
incurred after an account is charged off
pursuant to loan loss provisions.
Consistent with that proposed
clarification, the Bureau estimated the
percentage of collection costs that may
occur after charge-off so that they could
be excluded from the collection costs in
the Y–14 data. The Bureau notes that
the most significant post-charge-off
collection costs are likely to be
commissions paid to third-party debt
collectors for charged-off accounts. The
Bureau understands that such
commission payments, made to thirdparty debt collection companies, would
be made almost exclusively in
connection with accounts that have
been charged off, and represent a
conservative estimate of post-charge-off
collection costs, as there may be other
costs associated with collections postcharge-off beyond such commission
payments.
The Bureau estimated from debt
collection reports the commission
expenses that six major card issuers
paid in 2019 and 2020, representing 91
percent of balances and 93 percent of
collection costs among portfolios with
positive collection expenses reported in
the Y–14 data in the twelve months
leading up to August 2022.58 The
methodology for estimating post-chargeoff commissions considered the amount
of charged-off balances and then
estimated the commission on the
volume of recovered balances by using
the recovery and commission rates.59
58 As part of its review of the practices of credit
card issuers for its biennial review of the consumer
credit card market, the Bureau surveys several large
issuers to better understand practices and trends in
credit card debt collection. These data provided in
response to data filing orders served as the basis of
this calculation. For more information on these
data, see 2021 Report, at 17.
59 For example, if an issuer had a total of $1
million in newly charged-off balances in a given
year, a cumulative recovery rate for that year of five
percent, and a post-charge-off commission rate of 20
percent, the Bureau would estimate the post-chargeoff commission costs to be $10,000. To calculate the
post-charge-off collection costs as a share of total
cost of collections, the Bureau then divided the
estimated post-charge-off commission costs by the
total collection costs the bank reported in the Y–
14 data. For issuers who sell debt, the cost of
collections calculation uses charge-off balances net
of asset sales. The commission rate for each issuer
is an average weighted by the share of post-chargeoff balances in each tier placement (e.g., primary,
secondary, and tertiary placements).
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Based on these commission expenses
that these six major card issuers paid in
2019 and 2020 to third-party debt
collectors for charged-off accounts, the
Bureau estimated that these post-chargeoff costs are around 25 percent of total
collection costs for these issuers; the
average ratio was 27 percent in 2019
and 21 percent in 2020. In 2019, the
median ratio of estimated post-chargeoff commission costs to annual
collection costs in the Y–14 for
individual issuers was 28 percent; in
2020, it was 23 percent. Based on this
data, the Bureau estimated that precharge-off collection costs were equal to
75 percent of the collection costs
included in the Y–14 data for purposes
of its analysis related to the proposed
changes to the safe harbor thresholds for
late fees in § 1026.52(b)(1)(ii).
As discussed in more detail in the
section-by-section analysis in part V, the
Bureau also considered Y–14+ data in
developing this proposal. The Y–14+
data includes information from the
Board’s Y–14 data and a diverse group
of specialized issuers.
IV. Legal Authority
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A. Section 1022 of the Dodd-Frank Act
Section 1022(b)(1) of the Dodd-Frank
Act authorizes the Bureau to prescribe
rules ‘‘as may be necessary or
appropriate to enable the Bureau to
administer and carry out the purposes
and objectives of the Federal consumer
financial laws, and to prevent evasions
thereof.’’ 60 Among other statutes, title X
of the Dodd-Frank Act and TILA are
Federal consumer financial laws.61
Accordingly, in issuing this proposed
rule, the Bureau proposes to exercise its
authority under Dodd-Frank Act section
1022(b)(1) to prescribe rules under TILA
and title X that carry out the purposes
and objectives and prevent evasion of
those laws.
B. The Truth in Lending Act
As amended by the Dodd-Frank Act,
TILA section 105(a) 62 directs the
Bureau to prescribe regulations to carry
out the purposes of TILA, and provides
that such regulations may contain
additional requirements, classifications,
differentiations, or other provisions, and
may provide for such adjustments and
exceptions for all or any class of
transactions, that, in the judgment of the
60 12
U.S.C. 5512(b)(1).
Act section 1002(14); codified at
12 U.S.C. 5481(14) (defining ‘‘Federal consumer
financial law’’ to include the ‘‘enumerated
consumer laws’’ and the provisions of title X of the
Dodd-Frank Act); Dodd-Frank Act section 1002(12);
codified at 12 U.S.C. 5481(12) (defining
‘‘enumerated consumer laws’’ to include TILA).
62 15 U.S.C. 1604(a).
61 Dodd-Frank
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Bureau, are necessary or proper to
effectuate the purposes of TILA, to
prevent circumvention or evasion
thereof, or to facilitate compliance.
Pursuant to TILA section 102(a), a
purpose of TILA is to assure a
meaningful disclosure of credit terms to
enable the consumer to avoid the
uninformed use of credit and compare
more readily the various credit terms
available to the consumer. This stated
purpose is tied to Congress’s finding
that economic stabilization would be
enhanced and competition among the
various financial institutions and other
firms engaged in the extension of
consumer credit would be strengthened
by the informed use of credit.63 Thus,
strengthened competition among
financial institutions is a goal of TILA,
achieved through the effectuation of
TILA’s purposes.
As described above, the CARD Act
was signed into law on May 22, 2009,64
and the Act amended TILA 65 by adding
section 149, which provides, among
other things, that the amount of any
penalty fee with respect to a credit card
account under an open-end consumer
credit plan in connection with any
omission with respect to, or violation of,
the cardholder agreement, including any
late payment fee or any other penalty
fee or charge, must be ‘‘reasonable and
proportional’’ to such omission or
violation.66
At the time of its passage, the CARD
Act required the Board to issue rules
establishing standards for assessing the
reasonableness and proportionality of
such penalty fees, with a statutory
deadline of February 22, 2010 for
issuing this required rule.67 The Act
also authorized the Board to establish
different standards for different types of
fees and charges, as appropriate.68 The
CARD Act also allowed, but did not
require, the Board to issue rules to
provide for a safe harbor amount for any
such penalty fee that is presumed to be
reasonable and proportional to such
omissions or violations.69 This grant of
discretionary authority did not include
a deadline. The Board issued a rule on
June 29, 2010, completing the required
rulemaking (now contained in the
Bureau’s Regulation Z, 12 CFR
63 TILA section 102(a), codified at 15 U.S.C.
1601(a).
64 Public Law 111–24, 123 Stat. 1734 (2009).
65 15 U.S.C. 1601 et seq.
66 CARD Act section 102, 123 Stat. 1740 (15
U.S.C. 1665d(a)).
67 CARD Act section 102, 123 Stat. 1740 (15
U.S.C. 1665d(b)).
68 CARD Act section 102, 123 Stat. 1740 (15
U.S.C. 1665d(d)).
69 CARD Act section 102, 123 Stat. 1740 (15
U.S.C. 1665d(e)).
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1026.52(b)(1)(i)) and adding a
discretionary portion (now contained in
the Bureau’s Regulation Z, 12 CFR
1026.52(b)(1)(ii)) with safe harbors.
On July 21, 2011, the Board’s
rulemaking authority to implement the
provisions of TILA, including TILA
section 149, transferred to the Bureau
pursuant to sections 1061 and 1100A of
the Dodd-Frank Act.70
For the reasons discussed in this
proposal, the Bureau proposes to amend
certain provisions in Regulation Z that
impact the amount of late fees that card
issuers can charge to carry out TILA’s
purposes and proposes such additional
requirements, adjustments, and
exceptions as, in the Bureau’s judgment,
may be necessary and proper to carry
out the purposes of TILA, prevent
circumvention or evasion thereof, or to
facilitate compliance. In developing
these aspects of this proposal pursuant
to its authority under TILA section
105(a), the Bureau has considered the
purposes of TILA, including ensuring
meaningful disclosures, facilitating
consumers’ ability to compare credit
terms, and helping consumers avoid the
uninformed use of credit, and the
findings of TILA, including
strengthening competition among
financial institutions and promoting
economic stabilization.
The Bureau also has analyzed
whether the current safe harbor
threshold amounts for late fees are
reasonable and proportional to a
cardholder’s omission or violation. In
considering the appropriate amount, the
Bureau is guided by factors including
(1) the cost incurred by the creditor
from an omission or violation; (2) the
deterrence of omissions or violations by
the cardholder; (3) the conduct of the
cardholder; and (4) such other factors
deemed necessary or appropriate.
V. Section-by-Section Analysis
Section 1026.7
Periodic Statement
7(b) Rules Affecting Open-End (Not
Home-Secured) Plans
7(b)(11) Due Date; Late Payment Costs
Section 1026.7(b) sets forth the
disclosure requirements for periodic
statements that apply to open-end (not
home-secured) plans. Section
1026.7(b)(11) generally requires that for
a credit card account under an open-end
(not home-secured) consumer credit
plan, a card issuer must provide on each
periodic statement: (1) the due date for
a payment and the due date must be the
same day of the month for each billing
cycle; and (2) the amount of any late
70 Public
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payment fee and any increased periodic
rate(s) (expressed as APRs) that may be
imposed on the account as a result of a
late payment.
Currently, comment 7(b)(11)–4
provides that for purposes of disclosing
the amount of any late payment fee and
any increased APR that may be imposed
on the account as a result of a late
payment under § 1026.7(b)(11), a card
issuer that imposes a range of late
payment fees or rates on a credit card
account under an open-end (not homesecured) consumer credit plan may state
the highest fee or rate along with an
indication lower fees or rates could be
imposed. Comment 7(b)(11)–4 also
provides an example to illustrate how a
card issuer may meet the standard set
forth above, stating that a phrase
indicating the late payment fee could be
‘‘up to $29’’ complies with this
standard. The proposed rule would
amend comment 7(b)(11)–4 to read ‘‘up
to $8’’ so that the late fee amount in the
example would be consistent with the
proposed $8 late fee safe harbor amount
set forth in proposed § 1026.52(b)(1)(ii).
Section 1026.52
Limitations on Fees
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52(a) Limitations During First Year After
Account Opening
52(a)(1) General Rule
Section 1026.52(a)(1) generally
provides that the total amount of fees a
consumer is required to pay with
respect to a credit card account under
an open-end (not home-secured)
consumer credit plan during the first
year after account opening must not
exceed 25 percent of the credit limit in
effect when the account is opened.
Section 1026.52(a)(2) provides that late
payment fees, over-the-limit fees, and
returned-payment fees; or other fees that
the consumer is not required to pay
with respect to the account are excluded
from the fee limitation set forth in
§ 1026.52(a)(1).
Comment 52(a)(1)–1 provides that the
25 percent limit in § 1026.52(a)(1)
applies to fees that the card issuer
charges to the account as well as to fees
that the card issuer requires the
consumer to pay with respect to the
account through other means (such as
through a payment from the consumer’s
asset account to the card issuer or from
another credit account provided by the
card issuer). Comment 52(a)(1)–1 also
provides four examples to illustrate the
provision set forth above. The two
examples in comment 52(a)(1)–1.i and
iv contain late fee amounts of $15. The
proposed rule would amend the two
examples in comment 52(a)(1)–1.i and
iv to use a late fee amount of $8, so that
the late fee amounts in the examples are
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consistent with the proposed $8 late fee
safe harbor amount set forth in proposed
§ 1026.52(b)(1)(ii).
52(b) Limitations on Penalty Fees
52(b)(1) General Rule
Section 1026.52(b) provides that a
card issuer must not impose a fee for
violating the terms or other
requirements of a credit card account
under an open-end (not home-secured)
consumer credit plan unless the issuer
has determined that the dollar amount
of the fee represents a reasonable
proportion of the total costs incurred by
the issuer for that type of violation as set
forth in § 1026.52(b)(1)(i) (referred to
herein as the cost analysis provisions) or
complies with the safe harbor
provisions set forth in
§ 1026.52(b)(1)(ii). It further provides
that a card issuer must not impose such
a fee unless the fee is consistent with
certain prohibitions set forth in
§ 1026.52(b)(2), including a prohibition
in § 1026.52(b)(2)(i)(A) on imposing a
penalty fee that exceeds the dollar
amount associated with the violation,
which currently prohibits late fees that
exceed 100 percent of the required
minimum payment.71 The commentary
to § 1026.52(b) explains that penalty
fees subject to its provisions include late
fees, returned-payment fees, and fees for
over-the-limit transactions, among
others.72
As discussed in the section-by-section
analysis of § 1026.52(b)(1)(ii) below, the
Bureau proposes to amend
§ 1026.52(b)(1)(ii) to lower the safe
harbor dollar amount for late fees to $8
(currently set at $30) and to provide that
the higher safe harbor dollar amount for
subsequent violations of the same type
that occur during the same billing cycle
or in one of the next six billing cycles
(currently set at $41) does not apply to
late fees.73
In addition, as discussed in more
detail below, the Bureau proposes to
provide that the current provision in
§ 1026.52(b)(1)(ii)(D) that provides for
annual inflation adjustments for the safe
harbor dollar amounts would not apply
to the safe harbor amount for late fees.
Also, as discussed in the section-bysection analysis of § 1026.52(b)(2)(i)
below, the Bureau proposes to amend
§ 1026.52(b)(2)(i)(A) to provide that late
fee amounts may not exceed 25 percent
of the required minimum payment.
71 See
comment 52(b)(2)(i)–1.
comment 52(b)(1)–1.
73 As discussed in the section-by-section analysis
of § 1026.52(b)(1)(ii)(C) below, the Bureau is not
proposing to lower or otherwise change the safe
harbor amount of a late fee that card issuers may
impose when a charge card account becomes
seriously delinquent.
72 See
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The Bureau also proposes one
clarification that would apply to penalty
fees generally. Specifically, the Bureau
proposes to amend comment 52(b)(1)(i)–
2.i to clarify that costs for purposes of
the cost analysis provisions in
§ 1026.52(b)(1)(i) for determining
penalty fee amounts do not include any
collection costs that are incurred after
an account is charged off pursuant to
loan loss provisions.
The Bureau is not proposing to amend
the lead-in text of § 1026.52(b)(1).
However, for consistency with the
proposed amendments to other
provisions in § 1026.52(b) and for
clarity, the Bureau proposes certain
amendments to the commentary to
§ 1026.52(b) and (b)(1). Specifically, the
Bureau proposes to amend comment
52(b)–1.i.A to clarify that a late payment
fee or late fee is any fee imposed for a
late payment and to include a crossreference to § 1026.60(b)(9) and
accompanying commentary for further
guidance. The Bureau also proposes to
amend comment 52(b)–2, which
provides an illustrative example of how
to round a penalty fee to the nearest
whole dollar in compliance with the
rule. The proposed amendments would
reduce the dollar amounts of late fees in
the example to reflect amounts that
would be permissible under the
Bureau’s proposals to lower the late fee
safe harbor amount to $8 and to cap late
fees at 25 percent of the required
minimum payment. In addition, the
Bureau proposes to add new comment
52(b)–5 to clarify that any dollar amount
examples in the commentary to
§ 1026.52(b) relating to the safe harbors
in § 1026.52(b)(1) are based on the
original historical safe-harbor thresholds
of $25 and $35 for penalty fees other
than late fees, and on the proposed
threshold of $8 for late fees. This
proposed clarification would help
explain why the dollar amounts for
penalty fees other than late fees are
different from the ones set forth in the
regulatory text in § 1026.52(b)(1)(ii)(A)
and (B).
The Bureau also proposes to amend
comments 52(b)(1)–1.i.B and C, which
illustrate the relationship between the
cost analysis provisions in
§ 1026.52(b)(1)(i) and the safe harbor
provisions in § 1026.52(b)(1)(ii). The
Bureau proposes to amend the
illustrative example in comment
52(b)(1)–1.i.B to reflect a late fee amount
consistent with the proposal. In
addition, because the Bureau proposes
to substantially amend the safe harbor
provisions for late fees, the Bureau
proposes to remove references to late
fees from the illustrative examples in
comment 52(b)(1)–1.i.C and replace
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them with references to over-the-limit
fees.
In addition, the Bureau proposes to
amend comment 52(b)(1)–1.ii, which
illustrates the relationship between the
penalty fee limitations in § 1026.52(b)(1)
and the prohibitions in § 1026.52(b)(2).
The proposed amendments would
reduce the dollar amount of a late fee in
the example to reflect an amount that
would be consistent with the Bureau’s
proposal to lower the late fee safe harbor
amount.
The Bureau solicits comment on all
aspects of these proposed amendments
to the commentary to § 1026.52(b) and
(b)(1), including comment on what
additional amendments may be needed
to help ensure clarity and compliance
certainty.
52(b)(1)(i) Fees Based on Costs
As noted above, under the cost
analysis provisions in § 1026.52(b)(1)(i),
a card issuer may impose a fee for
violating the terms or other
requirements of an account consistent
with the general rule in § 1026.52(b)(1)
if the card issuer has determined that
the dollar amount of the fee represents
a reasonable proportion of the total costs
incurred by the card issuer as a result
of that type of violation. Section
1026.52(b)(1)(i) further provides that a
card issuer must reevaluate that
determination at least once every 12
months and sets forth certain other
requirements and conditions that apply
if, as a result of the reevaluation, the
card issuer determines that either a
lower or higher fee represents a
reasonable proportion of the total costs
incurred by the card issuer as a result
of that type of violation.
The Bureau is not proposing to amend
the text of § 1026.52(b)(1)(i). However,
for purposes of clarity and compliance
certainty, the Bureau proposes to revise
comment 52(b)(1)(i)–2.i to clarify that
the costs that card issuers can consider
for purposes of determining the amount
of a penalty fee under the cost analysis
provisions in § 1026.52(b)(1)(i) do not
include collection costs that are
incurred after an account is charged off
in accordance with loan-loss provisions.
Comment 52(b)(1)(i)–1 currently
provides that card issuers may include
in the costs for determining the amount
of a penalty fee ‘‘the costs incurred . . .
as a result of [the] violation.’’ Comment
52(b)(1)(i)–2 addresses amounts not
considered costs incurred by a card
issuer as a result of violations of the
terms or other requirements of an
account for purposes of
§ 1026.52(b)(1)(i). Comment 52(b)(1)(i)–
2.i provides that one such amount that
cannot be considered as costs incurred
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for purposes of § 1026.52(b)(1)(i) are
losses and associated costs (including
the cost of holding reserves against
potential losses and the cost of funding
delinquent accounts).
The Bureau proposes to amend
comment 52(b)(1)(i)–2.i to clarify the
‘‘losses and associated costs’’ that card
issuers may not consider as costs
incurred for purposes of
§ 1026.52(b)(1)(i) include any collection
costs that are incurred after an account
is charged off in accordance with loanloss provisions. The Bureau’s proposal,
therefore, would make it explicit that for
any collection costs that a card issuer
incurs after an account has been charged
off are not considered costs incurred for
purposes of § 1026.52(b)(1)(i). The
Bureau understands that when an
account has been charged off, the card
issuer has written the account off as a
loss; therefore, any cost in collecting
amounts owed to a card issuer that are
incurred post-charge-off is related to
mitigating a loss as opposed to the cost
of a violation of the account terms. As
the Board noted in its 2010 Final Rule
‘‘it would be inconsistent with the
purpose of the [CARD Act] to permit
card issuers to begin recovering losses
and associated costs through penalty
fees rather than through upfront
rates.’’ 74
The Bureau received two comments to
the ANPR that indicated there may be
a need to clarify that costs of collecting
amounts owed to a card issuer incurred
after an account is charged off are costs
related to a loss and, therefore, cannot
be considered as costs incurred for a
violation of account terms for purposes
of § 1026.52(b)(1)(i). For instance, one
industry trade group commenter noted
that, for example, late fees are meant to
cover, among other things, the chargeoff costs associated with late payments.
Another industry credit union
commenter similarly explained that late
fees help offset the charge-off on
accounts not paid by consumers. Given
the two comments suggesting potential
confusion, the Bureau proposes to
clarify that such costs cannot be
considered for purposes of
§ 1026.52(b)(1)(i).
The Bureau solicits comment on this
proposed clarification of the
commentary to § 1026.52(b)(1)(i),
including comment on whether any
additional clarification may be needed.
The Bureau also solicits comment on
whether there are other specific
clarifications that should be made to the
provisions of the commentary providing
guidance on how to perform a cost
analysis under the rule.
74 75
PO 00000
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52(b)(1)(ii) Safe Harbors
Overview of Proposed Amendments to
Late Fee Safe Harbor Provisions
As noted in part I, the Bureau is
concerned that (1) the safe harbor dollar
amounts for late fees currently set forth
in § 1026.52(b)(1)(ii) are not reasonable
and proportional to the omission or
violation to which the fee relates; (2) the
current higher safe harbor threshold for
late fees for subsequent violations of the
same type in the same billing cycle or
in one of the next six billing cycles is
higher than is justified based on
consumer conduct and to deter future
violations and, indeed, a late fee that is
too high could interfere with the
consumers’ ability to make future
payments on the account; and (3)
additional restrictions on late fees may
be needed to ensure that late fees are
reasonable and proportional. To address
these concerns, the Bureau proposes to
amend § 1026.52(b)(1)(ii) to lower the
safe harbor amounts for late fees—
currently set at $30 and $41 for a first
and subsequent violation, respectively—
to a late fee amount of $8 for the first
and subsequent violations.75 The
Bureau’s proposal would eliminate the
higher safe harbor amount for
subsequent late payment violations. As
discussed below, based on analysis of
available evidence and consideration of
the relevant factors, the Bureau
preliminarily determines that a late fee
amount of $8 for the first and
subsequent violations is presumed to be
reasonable and proportional to the late
payment violation to which the fee
relates. In addition, for the reasons
discussed in the section-by-section
analysis of § 1026.52(b)(1)(ii)(D), the
Bureau proposes to no longer apply to
the late fee safe harbor amount current
§ 1026.52(b)(1)(ii)(D) that provides for
annual inflation adjustments for the safe
harbor dollar amounts.
The Bureau is not proposing at this
time to similarly amend the safe harbor
provisions in § 1026.52(b)(1)(ii) as they
apply to other types of penalty fees,
including returned-payment fees, fees
for over-the-limit transactions, and
declined access check fees. The Bureau
is limiting the proposed amendments to
late fees because the $14 billion in late
fees charged in 2019 account for nearly
99 percent of all penalty fees imposed
by major card issuers in the Y–14+
75 As discussed in the section-by-section analysis
of § 1026.52(b)(1)(ii)(C) below, the Bureau is not
proposing to lower or otherwise change the safe
harbor amount of a late fee that card issuers may
impose when a charge card account becomes
seriously delinquent.
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data 76 and, as such, pose far greater
consumer protection concerns than do
other penalty fees totaling less than $0.2
billion that year. Moreover, as a result
of their prevalence, late fees have
produced a substantial amount of data
and other evidence that prompts and
forms the basis of this proposal. Further,
the Bureau has determined that
proposing to lower the safe harbor
amounts only for late fees is consistent
with its authority under TILA section
149(d), which authorizes the Bureau, in
issuing rules to implement the CARD
Act’s penalty fee provisions, to establish
‘‘different standards for different types
of fees and charges, as appropriate.’’ 77
Nonetheless, as discussed below, the
Bureau solicits comment on several
issues related to penalty fees generally,
including whether the safe harbor dollar
amount in § 1026.52(b)(1)(ii)(A) should
be similarly lowered for all penalty fees,
and the higher safe harbor amount
provision in § 1026.52(b)(1)(ii)(B)
should be similarly eliminated for all
penalty fees.
The Board’s Implementing Rule and
Findings
In the 2010 Final Rule implementing
TILA section 149, the Board established
penalty fee safe harbor amounts of $25
for the first violation and $35 for any
additional violations of the same type
that occur during the same billing cycle
or in one of the next six billing cycles.
In doing so, the Board indicated that it
‘‘believes that these amounts are
generally consistent with the statutory
factors of cost, deterrence, and
consumer conduct.’’ 78 In interpreting
TILA section 149(a), the Board found
that ‘‘it appears that Congress intended
the words ‘reasonable and proportional’
. . . to require that there be a reasonable
and generally consistent relationship
between the dollar amounts of credit
card penalty fees and the violations for
which those fees are imposed, while
providing the Board with substantial
discretion in implementing that
requirement.’’ 79
The Board’s Consideration of Costs.
The cost-related data on which the
Board relied was limited. Although the
Board received more than 22,000
comments on its proposed rule, the
Board noted that ‘‘relatively few
provided any data’’ supporting a
particular safe harbor amount.80 While
one commenter suggested the average
cost of collecting late payments for
Fee Report, at 13.
77 15 U.S.C. 1665d(c).
78 75 FR 37526, 37527 (June 29, 2010).
79 Id. at 37532.
80 Id. at 37541.
credit card accounts issued by the
largest issuers was $28, the Board noted
the comment ‘‘significantly overstates
the fee amounts necessary to cover the
costs incurred by large issuers as a
result of violations,’’ as it included costs
not incurred as a result of violations,
such as the cost of funding balances that
would have been charged off regardless
of fees.81
Given these limitations, instead of
relying on data related to the costs of
collecting late payments in setting the
safe harbor dollar amounts in its
Regulation Z, § 226.52(b)(1)(ii)(A) and
(B), the Board primarily considered the
following information in setting the safe
harbor dollar amounts: (1) the dollar
amounts of late fees currently charged
by credit card issuers; (2) the dollar
amounts of late fees charged with
respect to deposit accounts and
consumer credit accounts other than
credit cards; (3) State and local laws
regulating late fees; (4) the safe harbor
threshold for credit card default charges
established by the United Kingdom’s
Office of Fair Trading (OFT) in 2006; (5)
data related to deterrence that provides
evidence on whether the experience of
incurring a late payment fee makes
consumers less likely to pay late for a
period of time; and (6) data submitted
by a large credit card issuer that
indicated that consumers who pay late
multiple times over a six-month period
generally present a significantly greater
credit risk to issuers than consumers
who pay late a single time.
In establishing the safe harbor
amounts, the Board concluded that ‘‘it
is not possible based on the available
information to set safe harbor amounts
that precisely reflect the costs incurred
by a widely diverse group of card
issuers and that deter the optimal
number of consumers from future
violations,’’ 82 and stated its belief that
the safe harbor amounts established in
the rule were ‘‘generally sufficient to
cover issuers’ costs and to deter future
violations.’’ 83 The Board further
concluded that, based on the comments
received in response to its proposal, the
$25 safe harbor in § 226.52(b)(1)(ii)(A)
for the first violation was sufficient to
cover the costs incurred by most small
issuers as a result of violations.84
With respect to late payments, the
Board stated its belief that large issuers
generally incur fewer collection and
other costs on accounts that experience
a single late payment and then pay on
time for the next six billing cycles than
76 Late
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on accounts that experience multiple
late payments during that period.85 The
Board further reasoned that even if $25
is not sufficient to offset all of the costs
incurred by some large issuers as a
result of a single late payment, those
issuers will be able to recoup any
unrecovered costs through upfront APRs
and other pricing strategies.86
With respect to the higher safe harbor
amount in § 226.52(b)(1)(ii)(B), the
Board explained its belief that when an
account experiences additional
violations that occur during the same
billing cycle or in one of the six billing
cycles following the initial violation,
$35 would generally be sufficient to
cover any increase in the costs incurred
by the card issuer.87 As discussed in
more detail below, the Board also
explained its belief that the $35 safe
harbor amount would have a reasonable
deterrent effect on additional
violations 88 and was consistent with the
consumer’s conduct in engaging in
multiple violations of the same type
within six billing cycles.89
The Board’s Consideration of
Deterrence. The Board did not expressly
discuss how it took deterrence into
account in setting the initial $25 penalty
fee amount; instead, the Board limited
its discussion of that factor to the role
it played in the Board’s decision to set
a higher safe harbor amount for any
additional violation of the same type
that occurred during the same billing
cycle or in one of the next six billing
cycles. While the Board noted that it
considered deterrence in setting a
higher amount generally, the Board did
not have specific data justifying the $35
amount. The Board noted that one
commenter on the proposal submitted
the results of applying two deterrence
modeling methods to data gathered from
all leading credit card issuers in the U.S.
According to the commenter, these
models estimated that fees of $28 or less
have relatively little deterrent effect on
late payments but that higher fees are a
statistically significant contributor to
sustaining lower levels of delinquent
behavior. While the Board questioned
the assumptions used to arrive at the
results in these modeling methods, the
Board did accept that increases in the
amount of penalty fees can affect the
frequency of violations.90
With respect to the higher $35 fee for
repeat penalty fees that occur during the
same billing cycle or in one of the next
85 Id.
86 Id.
81 Id.
82 Id.
87 Id.
at 37544.
88 Id.
83 Id.
84 Id.
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at 37542.
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six billing cycles, the Board explained
its belief that a higher penalty fee
amount is consistent with the
deterrence factor set forth in TILA
149(c)(2) insofar as—after a violation
has occurred—the amount of the fee
increases to deter additional violations
of the same type that occur during the
same billing cycle or in one of the next
six billing cycles.91 The Board also
explained its belief that although
upfront disclosure of a penalty fee may
be sufficient to deter some consumers
from engaging in certain conduct, other
consumers may be deterred by the
imposition of the fee itself. For these
consumers, the Board explained its
belief ‘‘that imposition of a higher fee
when multiple violations occur will
have a significant deterrent effect on
future violations.’’ 92 The Board
specifically pointed to one study of four
million credit card statements, which
found that a consumer who incurs a late
payment fee is 40 percent less likely to
incur a late payment fee during the next
month compared to a consumer who
was not late, although this effect
depreciates approximately 10 percent
each month.93 Although this study
indicated that the imposition of a
penalty fee may cease to have a
deterrent effect on future violations after
four months, the Board concluded that
imposing an increased fee for additional
violations of the same type that occur
during the same billing cycle or in one
of the next six billing cycles is
consistent with the intent of the CARD
Act. The Board pointed to this study as
evidence indicating that, as a general
matter, penalty fees may deter future
violations of the account terms.94
The Board’s Consideration of
Consumer Conduct. The Board also took
consumer conduct into account in
adopting the higher $35 fee for repeat
penalty fees that occur during the same
billing cycle or in one of the next six
billing cycles.95 The Board explained its
belief that ‘‘multiple violations during a
relatively short period can be associated
with increased costs and credit risk and
reflect a more serious form of consumer
conduct than a single violation.’’ 96 The
Board noted that, based on data
submitted by a large credit card issuer,
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91 Id.
at 37533.
92 Id.
93 Sumit Agarwal et al., Learning in the Credit
Card Market (April 24, 2013), https://ssrn.com/
abstract=1091623 or https://dx.doi.org/10.2139/
ssrn.1091623. The Board reviewed a 2008 version
of the paper.
94 75 FR 37526, 37533 n.24 (June 29, 2010).
95 The Board did not refer to consumer conduct
in setting the $25 safe harbor amount. See id. at
37527.
96 Id.
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consumers who pay late multiple times
over a six-month period generally
present a significantly greater credit risk
than consumers who pay late a single
time. The Board acknowledged that this
data also indicates that consumers who
pay late two or more times over longer
periods (such as 12 or 24 months) are
significantly riskier than consumers
who pay late a single time. However, the
Board did not explain how adding
additional costs to these consumers
would make them less of a credit risk or
consider whether adding costs to
consumers who are unable to pay could
increase that risk.
The Board stated its belief that, when
evaluating the conduct of consumers
who have violated the terms or other
requirements of an account, it is
consistent with other provisions of the
CARD Act to distinguish between those
who repeat that conduct during the
same billing cycle or in one of the next
six billing cycles and those who do
not.97 Specifically, the Board noted that
(1) TILA section 171(b)(4) provides that,
if the APR that applies to a consumer’s
existing balance is increased because
the account is more than 60 days
delinquent, the increase must be
terminated if the consumer makes the
next six payments on time; and (2) TILA
section 148 provides that, when an APR
is increased based on the credit risk of
the consumer or other factors, the card
issuer must review the account at least
once every six months to assess whether
those factors have changed (including
whether the consumer’s credit risk has
declined).98 The Board did not,
however, explain why this is relevant to
the question of penalty fees.
The Bureau’s Proposed Amendments to
the Late Fee Safe Harbor Amounts
The safe harbor provisions in
§ 1026.52(b)(1)(ii) currently provide that
a card issuer may impose a fee for
violating the terms or other
requirements of an account if the dollar
amount of the fee does not exceed $30,
as set forth in § 1026.52(b)(1)(ii)(A), or
$41 for a violation of the same type that
occurs during the same billing cycle or
one of the next six billing cycles, as set
forth in § 1026.52(b)(1)(ii)(B). In
addition, § 1026.52(b)(1)(ii)(C) provides
a special safe harbor that applies when
a charge card account becomes seriously
delinquent. Under that provision, when
a card issuer has not received the
required payment for two or more
consecutive billing cycles on a charge
card account that requires payment of
outstanding balances in full at the end
97 Id.
Frm 00011
of each billing cycle, the issuer may
impose a late payment fee that does not
exceed 3 percent of the delinquent
balance.
The Bureau proposes to amend
§ 1026.52(b)(1)(ii) to provide that a card
issuer may impose a fee for a late
payment on an account under the safe
harbor if the dollar amount of the fee
does not exceed $8.99 The Bureau is
further proposing to amend
§ 1026.52(b)(1)(ii) to provide that other
than a fee for a late payment, a card
issuer may impose a fee for violating the
terms or other requirements of an
account if the dollar amount of the fee
does not exceed the safe harbor amounts
in § 1026.52(b)(1)(ii)(A), or (B), as
applicable. As such, the proposed $8
safe harbor amount for late fees would
be a single fee amount; it would apply
regardless of whether the fee is imposed
for a first or subsequent violation.
However, for all other penalty fees, card
issuers could still charge amounts not
exceeding the amounts in
§ 1026.52(b)(1)(ii)(A) and (B).
In addition, under the proposal,
charge card issuers could still impose a
fee pursuant to § 1026.52(b)(1)(ii)(C)
when a charge card account becomes
seriously delinquent as defined in the
rule. The Bureau recognizes that the fee
described in § 1026.52(b)(1)(ii)(C) is a
form of late fee but, for the reasons
discussed below, is not proposing to
lower the safe harbor amount under this
special provision for charge cards.
However, as discussed in the section-bysection analysis of § 1026.52(b)(1)(ii)(C)
below, the Bureau proposes to revise
this provision for clarity to provide that
a card issuer may impose a fee not
exceeding 3 percent of the delinquent
balance on a charge card account that
requires payment of outstanding
balances in full at the end of each
billing cycle if the card issuer has not
received the required payment for two
or more consecutive billing cycles,
notwithstanding the safe harbor late fee
amount in proposed § 1026.52(b)(1)(ii).
The Bureau emphasizes that the
proposed $8 safe harbor late fee amount
in proposed § 1026.52(b)(1)(ii) would
still apply to fees imposed on a charge
card account for late payments not
meeting the description in
§ 1026.52(b)(1)(ii)(C).
After analyzing available evidence
and considering the applicable statutory
factors, the Bureau preliminarily
determines that a late fee amount of $8
for the first and subsequent late
payments is presumed to be reasonable
99 As discussed in more detail below, there is one
proposed exception related to charge card accounts
as described in current § 1026.52(b)(1)(ii)(C).
at 37534.
98 Id.
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and proportional to the late payment
violation to which the fee relates.
The Bureau’s Analysis of Data and
Consideration of Statutory Factors
Costs. The Bureau has analyzed the
Y–14 data and other information in
considering the factor of the costs of a
late payment violation to the card
issuer. Based on that analysis, the
Bureau has preliminarily determined
that a late fee safe harbor amount of $8
for the first and subsequent violations
would cover most issuers’ costs from
late payments while providing card
issuers with compliance certainty and
administrative simplicity and, therefore,
reduce their compliance costs and
burden. The Bureau requests comments
on this preliminary determination, data
used, or any alternatives to either.
In considering the costs of late
payments to card issuers, the Bureau
has taken into account only those
(estimated) costs that card issuers are
permitted to take into account for
purposes of determining the amount of
a late fee under the cost analysis
provisions in § 1026.52(b)(1)(i) and
related commentary, including the
proposed clarification to comment
52(b)(1)(i)–2.i. As provided in the
commentary to § 1026.52(b)(1)(i), such
costs for late fees (1) include the costs
associated with the collection of late
payments, such as the costs associated
with notifying consumers of
delinquencies and resolving
delinquencies (including the
establishment of workout and temporary
hardship arrangements); and (2) exclude
losses and associated costs (including
the cost of holding reserves against
potential losses and the cost of funding
delinquent accounts). As discussed in
the section-by-section analysis of
§ 1026.52(b)(1)(i), the Bureau proposes
to clarify that costs for purposes of the
cost analysis provisions in
§ 1026.52(b)(1)(i) for determining
penalty fee amounts do not include any
collection costs that are incurred after
an account is charged off pursuant to
loan loss provisions. The Bureau
preliminarily finds that considering precharge-off collection costs as the ‘‘costs’’
of a late payment is consistent with
Congress’ intent to: (1) allow card
issuers generally to use late fees to pass
on to consumers the costs issuers incur
to collect late payments or missed
payments; (2) ensure that those costs are
spread among consumers and that no
individual consumer bears an
unreasonable or disproportionate share;
and (3) prevent card issuers from
recovering losses and associated costs
through late fees rather than through
upfront rates.
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As discussed in part III.C, the
reported collection costs in the Y–14
data (1) include costs incurred to collect
problem credits that includes the total
collection cost of delinquent, recovery,
and bankrupt accounts, and (2) do not
include losses and associated costs. The
Bureau concludes that the collection
costs data in the Y–14 are consistent
with the costs included for the cost
analysis provisions in § 1026.52(b)(1)(i)
except that the collection costs in the Y–
14 data include post-charge-off
collection costs. As discussed in part
III.C, the Bureau has estimated that
approximately 75 percent of collection
costs incurred by card issuers are
incurred pre-charge-off. Thus, as
discussed in part III.C, the Bureau’s
estimate of pre-charge-off collection
costs is based on only 75 percent of the
collection costs in the Y–14 data for
purposes of its analysis related to the
proposed changes to the safe harbor
thresholds in § 1026.52(b)(1)(ii), as
discussed in more detail below.
In developing the proposed late fee
safe harbor amount, the Bureau
carefully considered several sources of
data and other information to determine
the amount that would cover a
reasonable and proportional amount of
card issuers’ pre-charge-off collection
costs. As discussed in part III.C, and
described in detail below, the Bureau
reviewed and analyzed major issuers’
late fee income, collection costs, late fee
amounts, and required payment
information contained in the Y–14 data,
a source that was not available when the
Board set the initial safe harbor amounts
in 2010. That analysis indicates that late
fees generally generate revenue that is
multiple times higher than issuers’
collection costs. The Bureau also
reviewed issuers’ stated late fee
amounts in card agreements that issuers
are required by the CARD Act to submit
quarterly to the Bureau. Based on this
data, the Bureau expects that even if late
fees were reduced to one-fifth of current
levels (implying late fees of $8 or less),
most issuers would recover pre-chargeoff collection costs.
To estimate the fee income to
collection cost ratio, the Bureau used
the late fee income data and 75 percent
of the collection costs contained in the
Y–14 data (referred to below as
‘‘estimated pre-charge-off collection
costs’’).100 Using the Y–14 data, the
100 For additional information and data related to
this late fee income to collection cost ratio, see
Bureau of Consumer Fin. Prot., Credit Card Late
Fees: Revenue and Collection Costs at Large Bank
Holding Companies, (Jan. 2023) (Revenue-Cost
Report), https://files.consumerfinance.gov/f/
documents/cfpb_credit-card-late-fees-revenue-and-
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Bureau analyzed monthly late fee
income and estimated pre-charge-off
collection costs for the consumer
segments of major issuers’ credit card
portfolios, namely the consumer general
purpose and private label portfolios. For
the 16 consumer portfolios with
continuous cost data for the first three
quarters of 2022 (adding up to about 73
percent of total consumer credit card
balances at the end of September 2022),
total late fee income in the first three
quarters added up to $4.46 billion,
while total collection costs added up to
$1.19 billion with pre-charge-off
collection costs estimated to be $896
million.
In reviewing the monthly data, the
Bureau observed that late payments
exhibit seasonal patterns. The Bureau
also considered that there may be a
delay between when a late fee was
assessed and when the issuer incurs
substantial collection costs associated
with the account. For these reasons, the
Bureau compared each month’s late fee
income for a particular portfolio to the
portfolio’s average estimated pre-chargeoff collection costs for that month,
where that estimate was based on
estimated pre-charge-off collection costs
that occurred two through six months
later.101 The Bureau developed monthly
estimates of this late fee income-to-cost
ratio for each year from 2013 up to early
2022. The analysis showed that an
average of this ratio across issuers and
market segments, weighted by the
number of accounts reported in the Y–
14 data, has been fairly stable since
early 2019 (and was higher before 2019).
As shown in Figure 1 below, late fee
income has always been higher than
three times subsequent estimated precharge-off collection costs, and more
than four times as high in all but five
pandemic months (May 2020 and
February–May 2021, coinciding with
pandemic stimulus payments, when
there was a reduction in late fee income
without a corresponding decline in
average collection costs in subsequent
months). Since August 2021, late fee
collection-costs-at-large-bank-holding-companies_
2023-01.pdf.
101 For example, if an issuer were to report late
fee income of $15 million in January for a portfolio
and total collection costs for that portfolio of $20
million in March through July, the Bureau
estimated $15 million in pre-charge-off collection
costs in March through July and calculated an
average monthly collection cost of $3 million for
purposes of this analysis—resulting in a ratio of late
fee income of $15 million to collection cost of $3
million for this portfolio for the month of January.
The Bureau found that its preliminary findings
based on the weighted average of this ratio across
issuers and market segments as discussed in the
analysis below are robust to shifting, expanding, or
shortening the time period of delay in collection
costs as they relate to late fee income.
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income has exceeded the relevant
estimated pre-charge-off costs more than
fivefold, which resembles the period
before the pandemic.
Based on this analysis, the Bureau
expects that the average issuer would
recover pre-charge-off collection costs
even if late fees were reduced to onefifth of their current level. All but one
issuer among those in the Y–14 data
(representing the majority of balances in
the credit card market) disclosed late
fees ‘‘up to’’ $40 or $41 (the current
maximum safe harbor amount) in their
most recent card agreements submitted
to the Bureau. Given the finding that, in
the most recent data, late fee income is
greater than five times estimated precharge-off costs, the Bureau expects that
an $8 late fee would still recover the
average issuer’s pre-charge-off collection
costs, as that fee represents one-fifth of
the maximum late fee amount, which is
necessarily greater than average fee
income per late payment.
The Bureau also notes that average
late fees are lower than the disclosed
maximum late fees. As discussed in part
II.D, in 2019, the average late fee
charged by issuers in the Y–14+ data
was $31.102 Reasoning that the average
late fees are lower than the current
maximum safe harbor of $41 and yet
still generate late fee income that is
again more than five times the ensuing
(estimated) pre-charge-off collection
costs since August 2021, the Bureau
preliminarily concludes that $8 is likely
to recover the average issuer’s precharge-off collection costs. Because the
proposed safe harbor, if adopted, could
be used by card issuers generally, and
is not tailored to any particular type of
issuers or consumers, the Bureau
preliminarily finds that is appropriate to
consider average issuers’ pre-charge-off
collection costs in determining the late
fee safe harbor amount. The Bureau also
preliminarily finds that establishing a
generally applicable safe harbor will
facilitate compliance by issuers and
increase consistency and predictability
for consumers.
The Bureau acknowledges that not all
issuers in the Y–14 data face the average
pre-charge-off collection costs. By using
estimates of pre-charge-off collection
costs per paid incident using the Y–14
data from September 2021 to August
2022, the Bureau estimates that fewer
than four of the 12 card issuers in the
Y–14 data have estimated pre-charge-off
collection costs that are significantly
higher than one-fifth of their late fee
income. For these issuers, the proposed
$8 safe harbor amount may not have
been enough to fully recover estimated
pre-charge-off collection costs, such that
the benefits of using the cost analysis
provisions may outweigh the
administrative simplicity of using the
safe harbor. While the most recent data
suggest that the proposed safe harbor
amount would cover pre-charge-off
collection costs for most issuers, the
102 Late Fee Report, at 6. To gain further insights
into how the average late fee compares to the
disclosed maximum late fee in the agreements, the
Bureau analyzed a 40 percent random subsample of
tradelines of Y–14 data from 2019 to observe the
incidence of late fees and the fee amounts assessed.
The Bureau observed that the average late fees have
been lower than the amounts in the card agreements
for several reasons, including (1) some late fees did
not occur within six months of an earlier late fee
and thus are set at the lower safe harbor amount;
and (2) some late fees reflect the current limitation
in § 1026.52(b)(2)(i)(A) and related commentary that
prohibits late fees from exceeding the minimum
payment amount that is due. The Bureau also
observed that some late fees are imposed but later
reversed and that some late fees are charged to
accounts that never make another payment.
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Bureau recognizes that some issuers
may choose to determine the late fee
amount using the cost analysis
provisions in § 1026.52(b)(1)(i), rather
than using the proposed $8 safe harbor
amount, if $8 is insufficient to recover
their pre-charge-off collection costs.103
The Bureau recognizes that the
analysis above is based on data from the
largest issuers, and may not be
representative of smaller issuers, who
do not report to the Y–14 collection. As
discussed above, the Bureau did not
receive specific cost data in response to
its request in the ANPR for data on card
issuers’ pre-charge-off collection costs,
including data on pre-charge-off
collection costs incurred by smaller
issuers. Although the Bureau does not
have data equivalent to the Y–14 data
for smaller issuers’ pre-charge-off
collection costs, it has no reason to
expect that smaller issuers exhibit
substantially higher pre-charge-off
collection costs than larger issuers. On
the other hand, the Bureau expects that
the proposed $8 amount would have a
proportionately smaller impact on
smaller issuers’ late fee income, due to
smaller issuers’ having lower late fee
amounts. In 2020, the average late fee
for issuers in the Y–14+ data was
$31.104 The Bureau collects card
agreements from many more smaller
issuers than issuers for which the
103 The Bureau estimates from the same data that
a $5 safe harbor amount would drive half of the
market represented in the Y–14 data to use the cost
analysis provisions in § 1026.52(b)(1)(i) to
determine the late fee amount and that a $4 safe
harbor amount would do so for eight issuers
holding around three-quarters of the represented
issuers’ outstanding balances.
104 2021 Report, at 55.
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Bureau has financial data. Based on a
review of those agreements from over
500 credit card issuers, each outside the
top 20 by outstanding credit card loans
and having more than 10,000 credit card
accounts, the Bureau established that
smaller issuers charged smaller late fees
in 2020 than larger issuers, with a
modal maximum disclosed late fee for
smaller issuers of $25.105 The Bureau
solicits comment on this analysis and
the potential impact on smaller issuers
of the proposed $8 safe harbor amount,
including whether smaller issuers can
provide data or evidence related to the
cost of collecting late payments. The
Bureau also solicits comment on
whether the pre-charge-off collection
costs for smaller issuers differ from such
costs for larger issuers, and if so, how
the costs differ.
The Bureau notes that the analysis
based on the Y–14 data discussed above
does not take into account any potential
changes in consumer behavior in
response to the proposed change in the
late fee safe harbor amount. In
particular, the discussion does not take
into account the possibility that reduced
late fees will lead to more late
payments. However, as discussed
below, the Bureau’s analysis of Y–14
data and other information suggests that
the proposed $8 safe harbor amount for
the first and subsequent late payments
would still have a deterrent effect on
late payments. The Bureau also expects
that any increase in the frequency of late
payments, as a result of the reduced late
fee safe harbor amount, would increase
both fee income and collection costs.
Even if more consumers pay late
because of the decreased amount, the
increased number of late payments are
unlikely to be more costly, on average,
to administer and collect than the
current number of late payments.
Therefore, the Bureau expects that
collection costs to card issuers would
not increase by more than fee income.
The Bureau seeks comment specifically
as to this analysis, including data or
evidence as to whether reduced fees
would affect the frequency of late
payments or collection costs.
The Bureau does not expect the
proposal to cap late fees at 25 percent
of the required minimum periodic
payment due, discussed in the sectionby-section analysis of § 1026.52(b)(2)(i),
to materially change the late fee income
issuers can collect overall when the
issuer is using the proposed $8 safe
harbor amount. The cap would require
issuers to impose late fees lower than
the proposed $8 safe harbor amount
only when the minimum periodic
105 Late
Fee Report, at 14.
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payment due is $32 or less. Nonetheless,
as discussed in more detail in the
section-by-section analysis of
§ 1026.52(b)(2)(i), the instances where
25 percent of the minimum payment
may be less than the proposed $8 safe
harbor do not appear to be frequent. The
Y–14 data from October 2021 to
September 2022 shows that for those
months in which an account was late,
only 7.7 percent of those accounts had
a minimum payment of less than $32.106
The Bureau notes that the Y–14 data
discussed above on which the Bureau
relied in considering card issuers’ precharge-off collection costs are far richer
and more extensive than the data on
which the Board relied when it
established the penalty fee safe harbor
amounts in its 2010 Final Rule. This is
due in large part to the Bureau’s access
to nearly a decade’s worth of Y–14
data—a data source that did not exist
when the Board was developing its rule.
In contrast, as discussed above, the data
and other information on which the
Board relied was limited, as systematic
reporting of card issuers’ collection
costs was not available and relatively
few commenters on the Board’s
proposal provided any data on
collection costs in response to the
Board’s request for such data, with some
providing data that the Board found
unreliable.
Similarly, the Bureau did not receive
specific cost data in response to its
request in the ANPR for data on card
issuers’ pre-charge-off collection costs,
including costs associated with
notifying (other than through periodic
statements) cardholders of
delinquencies and resolving
delinquencies (including the
establishment of workout and temporary
hardship arrangements) prior to chargeoff, including payments to third-party
debt collectors. In general, card issuers
and their trade groups provided
information on card issuers’ late fee
pricing structures, individually or
industry-wide, and further provided
high-level explanations for those pricing
structures, including recovering
collection costs, risk management, and
the effects of the safe harbor provisions
106 For more information on the distribution of
minimum payments for late accounts in the Y–14
data, see Figure 3 and related discussion in the
section-by-section analysis of § 1026.52(b)(2)(i).
However, issuers could adjust how they determine
minimum payments such that the 25 percent
limitation on late fees would only affect those
accounts with balances of less than $32, whose
minimum payment will always be less than $32 as
the minimum payment can never exceed the
statement balance. Based on the Y–14 data between
October 2021 and September 2022, for those
months in which an account was late, only 2.1
percent of accounts had balances of less than $32.
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themselves. In a joint comment, for
example, several trade groups asserted
that the similarity of late fees across
issuers is a predictable response to the
benefits of legal certainty granted under
the law. These trade groups further
asserted that the safe harbor allows
issuers to recover some (though not all)
of the costs associated with late
payments and encourages on-time
payments, while also providing issuers
with compliance certainty. These trade
groups, however, did not provide data
on issuers’ pre-charge-off collection
costs. Neither did any other
commenters.
One credit union trade group
provided estimates of the hourly labor
costs of collecting late payments, based
on the average salary of a collections
agent that the commenter obtained from
a publicly available source. This credit
union trade group commenter did not
provide estimates of what portions of
those hourly labor costs are pre-chargeoff and post-charge-off, nor did it
provide the number of hours of labor
that would be needed per late payment.
As a result, it was not possible to
determine the late fee cost per account
based on the data provided.
The Bureau also notes the current safe
harbor amounts of $30 and $41 are
significantly higher than the pre-chargeoff collection costs as shown in the
Bureau’s analysis. Moreover, as
discussed in part II.E, most large issuers
have taken advantage of the increased
safe harbors as adjusted for inflation by
increasing their fee amounts.107
Eighteen of the top 20 issuers by
outstanding balances contracted for a
maximum late fee at or within 10
percent of the higher safe harbor amount
in 2020.108 Although card issuers
generally do not impose late fees at the
highest contracted-for amount, issuers
have steadily been charging consumers
more in credit card late fees each
year,109 with the average late fee
imposed increasing in amount from $23
at the end of 2010 to $31 in 2019.110
The Bureau is thus concerned that
credit card late fee amounts imposed
pursuant to the current safe harbor
amounts—which, as adjusted for
inflation, were established in 2010
based on limited data available at the
time—far exceed card issuers’ actual
pre-charge-off collection costs resulting
from late payment violations and thus
107 Late
Fee Report, at 14.
108 Id.
109 As noted above, the one exception to this
trend is a brief period during the pandemic when
there was a drop in card issuers’ late fee income
corresponding with government stimulus payments.
110 Late Fee Report, at 6. See also 2013 Report, at
23.
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are not reasonable and proportional. In
considering the costs of such violations
to issuers, the Bureau has analyzed
available data sources and other
information, including Y–14 data
extending back several years, as
discussed above. The Bureau recognizes
that the costs of collecting late payments
will vary from issuer to issuer and that
a late fee safe harbor amount of $8 may
not cover all of those costs for all
issuers. The Bureau notes, however, that
TILA section 149(e) authorizes the
Bureau to issue rules to provide, for any
penalty fee or charge, a safe harbor
amount that is presumed to be
reasonable and proportional to the
omission or violation to which the fee
or charge relates.
The Bureau also considered cost as
one of the factors in making that
determination. The Act, however, does
not require the Bureau to establish a late
fee safe harbor amount that covers the
costs for all issuers or the entire costs of
the omission or violation in all
instances. Moreover, the Bureau is
concerned that setting a higher safe
harbor amount for late fees in order to
cover the pre-charge-off collection costs
of all card issuers could result in an
amount that exceeds the costs for most
card issuers. As discussed in part II.E,
the Bureau is concerned that card
issuers may have a disincentive to
charge a lower fee amount than the safe
harbor amount, even if their average
collection costs are less than the safe
harbor amount, given the industry’s
reliance on late fees as a source of
revenue and that many consumers may
not shop for credit cards based on the
amount of the late fee.
In addition, because the Bureau
anticipates that most card issuers would
use the proposed $8 late fee safe harbor
threshold amount, the proposed safe
harbor provisions in § 1026.52(b)(1)(ii)
would continue to save costs for most
card issuers, by continuing to save them
the administrative burden and
complexity of using the cost analysis
provisions in § 1026.52(b)(1)(i) to
determine the late fee amount. As
discussed above, in considering the
appropriate safe harbor amount for late
fees, the Bureau is guided by the factors
in TILA section 149(c), which provides
that the Bureau can consider such other
factors that the Bureau deems necessary
or appropriate. The Bureau
preliminarily finds that it is both
necessary and appropriate, when
considering the portion of card issuers’
pre-charge-off costs that a late fee safe
harbor amount would cover, to take into
account the cost savings from
compliance certainty and administrative
simplicity accorded by a safe harbor.
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The Bureau also preliminarily finds that
a late fee safe harbor amount of $8 for
the first and subsequent late payments
strikes the appropriate balance of these
considerations. The Bureau seeks
comment on all aspects of the analysis
above, including data or other
information to support why the $8
amount is or is not sufficient to cover
card issuers’ pre-charge-off costs. The
Bureau also seeks specific comment on
whether the data on pre-charge-off
collection costs discussed above
accurately reflect the costs that card
issuers incur as the result of a late
payment violation before charge-off,
including data or other information
indicating whether the Bureau’s
analysis over- or underestimates such
costs.
The Bureau further notes that if the
proposed $8 safe harbor amount is not
sufficient to cover a particular card
issuer’s pre-charge-off costs in collecting
late payments, the card issuer can
charge a higher amount, if consistent
with the cost analysis provisions in
§ 1026.52(b)(1)(i) and the requirements
in § 1026.52(b)(2). Card issuers also may
undertake efforts to reduce collection
costs or use interest rates or other
charges to recover some of the costs of
collecting late payments. Building those
costs into upfront rates would provide
consumers greater transparency
regarding the cost of using their credit
card accounts.
For the foregoing reasons, the Bureau
preliminarily concludes that a late fee of
$8 for the first and subsequent
violations is appropriate to cover precharge-off costs for card issuers on
average while providing issuers
compliance certainty and administrative
simplicity.
Deterrence. As noted above, in the
2010 Final Rule, the Board did not
expressly discuss how it took deterrence
into account in setting the $25 penalty
fee amount; instead, the Board limited
its discussion of that factor to the role
it played in the Board’s decision to set
a higher safe harbor amount for any
additional violation of the same type
that occurs during the same billing cycle
or in one of the next six billing cycles.
In developing this proposal, the
Bureau analyzed available data to
consider the extent to which lower late
fees for both the first and subsequent
late payments could potentially lessen
deterrence. The Bureau recognizes that
late fees are a cost to consumers of
paying late, and a lower late fee amount
for the first or subsequent late payments
might cause more consumers to pay late.
The Bureau also recognizes that it does
not have direct evidence on what
consumers would do in response to a
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fee reduction similar to those contained
in the proposal, and market participants
did not provide data on deterrence in
response to the Bureau’s ANPR. The
Bureau notes, however, that the Y–14
data and other information that has
become available since the Board issued
its 2010 Final Rule support the
proposed reduction.
As discussed in more detail below,
the Bureau preliminarily finds that this
available evidence suggests that the
proposed $8 safe harbor amount would
still have a deterrent effect on late
payments. Even if the proposed $8 safe
harbor would increase the frequency of
late payments by some percentage, the
Bureau has preliminarily determined
that some cardholders may benefit from
the proposed $8 safe harbor threshold
amount in terms of a greater ability to
repay revolving debt. The Bureau also
notes that card issuers have methods
other than higher late fees (1) to deter
late payment behavior; and (2) to
facilitate timely payments, for example,
automatic payment and notification
within a certain number of days (e.g.,
five days) prior to the due date that the
payment is coming due.
In making its preliminary
determination that lowering late fee
amounts to the proposed $8 safe harbor
amount would still have a deterrent
effect on late payments, as discussed in
more detail below, the Bureau
considered (1) a comparison of the
proposed $8 late payment safe harbor
amount to minimum payment amounts
on accounts in the Y–14 data; and (2)
available empirical evidence on the
effects of credit card late fees on the
prevalence of late payments.
The Bureau notes that whether a
consumer is late in making a required
payment depends in part on the
consequences of paying late, including
both penalty fees for late payments and
other consequences such as increased
interest charges and potential credit
reporting consequences (as discussed in
part II.G and in more detail below).
From the point of view of a rational
consumer faced with the decision of
whether to make a minimum balance
payment on time or to put off the
payment until later, the decision
represents a tradeoff weighing the value
to the consumer of retaining the money
for longer against the total costs of
paying late. For the median minimum
payment amount of approximately $100
for accounts that paid late in the Y–14
data from October 2021 through
September 2022, the costs of paying late
are quite steep both under current late
payment fee amounts and under the
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proposed $8 safe harbor amount.111 For
example, a consumer who effectively
borrows a minimum payment amount of
$100 until the next due date (that is,
who makes a payment one month late)
and pays a $8 late fee would be
incurring an effective APR of 96 percent
even ignoring other consequences. In
addition, a consumer who effectively
borrows a minimum payment amount of
$40 for 10 days (past due) and pays a
$8 late fee would be incurring an
effective APR of 730 percent. As the
median minimum due was $39 for all
cardholders between October 2021 and
September 2022 in the Y–14 data,112
and around half of late payers made a
payment in less than 10 days past the
due date, the effective APR could be
higher than 730 percent for some
consumers. Thus, the Bureau has
preliminarily determined that the
proposed $8 late fee safe harbor amount
is still a powerful deterrent to those
consumers who pay attention to
financial penalties.
The Bureau also has considered
available empirical evidence on the
effects of credit card late fees on the
prevalence of late payments. In
particular, the Bureau considered (1) a
2022 paper analyzing the effect of the
reduction of late fee amounts that
became effective as a result of the CARD
Act in 2010; (2) analysis by the Bureau
using Y–14 data of how the prevalence
of late payments is affected by increases
in late fee amounts during the six
months following a violation; and (3)
other empirical investigations into the
correlates of late fee amounts and late
fee incidence as discussed below.
In analyzing the available data, the
Bureau notes a 2022 paper by Grodzicki
et al., containing an empirical analysis
that concluded that a decrease in the
late fee amount stemming from the
Board’s 2010 Final Rule raised the
likelihood of a cardholder paying
late.113 While the Bureau recognizes
that this paper suggests that consumers
may engage in more late payments when
they are less costly to consumers, for the
reasons discussed below, the Bureau
does not consider this robust evidence
that the proposed $8 safe harbor late fee
amount would not have a deterrent
111 For more information about the distribution of
minimum payment amounts for late accounts in the
Y–14 data, see Figure 3 and related discussion in
the section-by-section analysis of § 1026.52(b)(2)(i).
112 For purposes of the calculations of the
distribution of the minimum payment amounts in
the Y–14 data, the calculations do not include
account-months where a late fee was charged but
the minimum due was reported to be $0.
113 Daniel Grodzicki, et al., Consumer Demand for
Credit Card Services, Journal of Financial Services
Research (Apr. 25, 2022), https://link.springer.com/
article/10.1007/s10693-022-00381-4.
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effect. The Bureau also notes the paper
focused on the late fee variations
resulting from the limitations on penalty
fee amounts in the Board’s 2010 Final
Rule and thus could be confounded by
other market changes coinciding with
the rule going into effect. In particular,
the late fee provisions in the Board’s
2010 Final Rule were implemented in
August 2010, as the U.S. economy was
still dealing with the aftermath of the
Great Recession,114 and thus it was
difficult to attribute consumer finance
statistical trends to particular events.
Moreover, the Board’s 2010 Final Rule
affected all consumers and all issuers,
so there was no suitable control group
of consumers that were charged the
same amount of late fees before and
after the implementation of the Board’s
2010 Final Rule. Thus, the 2022 paper
compared consumer behavior in the
year before and the year after August
2010, and the causal attribution of an
increase in late payments to a reduction
of the late fee amount is hard to prove
due to the general economic uncertainty
around that time.
In developing this proposal, the
Bureau analyzed Y–14 data from 2019,
where the variation in late fees does not
correspond to other big changes or
differences that might plausibly affect
late payment. As this proposal
discusses, the current rule sets a higher
late fee safe harbor amount for instances
where another late payment occurred
over the course of the preceding six
billing cycles. The Bureau conducted
statistical analysis to investigate
whether the lower late fee amount in
month seven leads to a distinct rise in
late payments (Y–14 seventh-month
analysis). Specifically, the Bureau
estimated whether there are
discontinuous jumps in late payments
in the seventh month after the last late
payment.115 This analysis focused on
these potential jumps to isolate the
potential impact that the lower late fee
that would apply in month seven might
have on late payment rates, given that
month seven is generally comparable to
month six other than the lower late fee
amount. In a random subsample from
account-level data available in 2019
from the Y–14 data, this statistical
analysis did not support that the lower
late fees in month seven have an effect
114 The Great Recession began in the fourth
quarter of 2007 and ended in the second quarter of
2009. See generally Nat’l Bureau of Econ. Res.,
Business Cycle Dating Committee, (Sept. 20, 2010),
https://www.nber.org/cycles/sept2010.html.
115 The Bureau observed in the Y–14 data that,
consistent with the safe harbor provisions of the
current rule, consumers who paid late again within
the six months after a late payment paid higher late
fees during those six months than they paid after
the initial late fee.
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on the late payment rate, at
conventional confidence levels. In
addition, as a separate observation, the
Bureau observed that for consumers that
incurred a higher fee for a late payment
during the six months after the initial
late payment, the payment of that higher
late fee did not lead to a discernibly
lower chance of late payment for a third
time in the future than for those
consumers whose second late fee was
lower because they paid late seven or
more months after their first late
payment.
The Bureau acknowledges that the
variation in late payments in the Y–14
seventh-month analysis discussed above
is not the same as the changes that
would result from the proposed rule.
Nonetheless, this evidence suggests the
prevalence of late payments is not
highly sensitive to the level of late fees
at the current order of magnitude.
An advantage of the Y–14 seventhmonth analysis is that it avoids
confounding factors that often are found
in other studies of late fees, including
the 2022 paper by Grodzicki et al.,
discussed above. Studies that compare
behaviors of consumers facing higher or
lower fees (if late) with consumers in a
comparison group are often fraught with
multiple confounding factors that may
also vary across time periods, issuers,
products, or consumer behavior in each
group.
The preliminary finding from the Y–
14 seventh-month analysis described
above is still contingent upon the fact
that some consumers understand that
their issuers charge lower late fees
starting the seventh month after an
initial violation. The Bureau recognizes
that the higher late fees for subsequent
late payments within the next six billing
cycles might be more of a deterrent if
consumers understand them better in
2022 than they did in 2019, but the
Bureau has no evidence to indicate that
is the case. However, this analysis is not
dependent on all issuers charging the
lower late fee safe harbor amount more
than six months after a late payment nor
the higher late fee safe harbor amount
within the six billing cycles. As long as
some issuers made use of the higher safe
harbor, and the analysis described above
shows they did, the Bureau should still
have been able to detect an increase in
the deterrent effect of their fee structure.
The Bureau also notes that because
the Y–14 seventh-month analysis
discussed above focused on a potential
discrete jump in late payments more
than six months after a preceding late
payment, it also allowed for late
payments to trend down as more time
passed after a late payment. As
described above, the Bureau did not see
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the lower late fee amount that could be
charged in month seven change this
downward trend.
The Bureau also has preliminarily
determined that other publicly available
studies on late fees suggest that the
proposed $8 safe harbor amount would
still have a deterrent effect on late
payments. Empirical investigations into
the correlates of late fee amounts 116 and
late fee incidence 117 noted that late fee
payment can often be avoided by small
and relatively costless changes in
behavior. This suggests that the lower
proposed $8 late fee safe harbor amount
would still be higher than the costs of
making a timely payment. The Bureau
has preliminarily determined that the
triggers that make cardholders avoid the
current prevailing late fees also would
make cardholders avoid a $8 late fee.118
116 Nadia Massoud, et al., The Cost of Being Late?
The Case of Credit Card Penalty Fees, 7 Journal of
Financial Stability, at 49–59 (2011).
117 Sumit Agarwal, et al., The Age of Reason:
Financial Decisions Over the Life Cycle and
Implications for Regulation, 2 Brookings Papers on
Economic Activity, at 51–117 (2009).
118 The Bureau notes that several industry
commenters on the ANPR discussed a survey
conducted by Argus Advisory, a TransUnion
Company, in 2010. The commenters indicated that
this survey demonstrates that there is a threshold
which late fees must reach in order to encourage
cardholders to pay on time. The commenters
indicated that this survey shows that to deter a
majority of cardholders from making a late
payment, a fee of $40 to $46 would be required. The
Bureau acknowledges that an order of magnitude
higher fee amounts is likely to deter more
consumers from paying late but finds that questions
to consumers on hypothetical late payment
amounts are less informative about the effects of
late payment fees in practice. The Board also
discussed this survey when it adopted the 2010
Final Rule and did not believe that it would be
appropriate to give significant weight to the results
of the survey. The Board noted: ‘‘Although surveys
of this type are sometimes used to gauge the prices
consumers may be willing to pay for retail products,
the Board understands that their accuracy is limited
even in that context. Furthermore, the Board is not
aware of this type of survey being used to measure
the deterrent effect of fees. Accordingly, the Board
does not believe that it would be appropriate to give
significant weight to the results of this survey.’’ 75
FR 37526, 37541 n. 43 (June 29, 2010).
Several industry commenters also argued that late
fees are often used in other industries, and similar
to the card market, higher fees are more effective
at encouraging compliance with due dates. The
commenters pointed to studies in the video rental
market that showed that payment of a late fee
decreases the likelihood of a late return the next
month by nearly 9 percent, and the deterrent effect
of late fees increases with the size of the penalty.
Haselhuhn et al., The Impact of Personal
Experience on Behavior: Evidence from VideoRental Fines, Management Science, vol. 58, No. 1
(2012). These commenters also pointed to another
study on the video rental market that found that (1)
paying a late fee reduces the likelihood that the
next return will be late by 19 percent; (2) these
effects decrease the farther out from the initial
payment the customer gets. Fishman and Pope,
Punishment-Induced Deterrence: Evidence from the
Video-Rental Market, Univ. of Cal., Berkeley, Dept.
of Econ. (2006). The Bureau recognizes that the
results of these studies are in line with the broader
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As discussed above, in support of
applying higher late fee safe harbor
amounts for the following six billing
cycles after a late payment, the Board in
adopting its 2010 Final Rule pointed to
a 2008 study by Agarwal et al., of four
million credit card statements, which
found that a consumer who incurs a late
payment fee is 40 percent less likely to
incur a late payment fee during the next
month, although this effect depreciates
approximately 10 percent each
month.119
The Bureau has consulted the last
available revision of the cited working
paper by Agarwal et al., from 2013, and
has preliminarily determined that the
study is of limited relevance as to
whether the late fee amount impacts late
payment incidence, for two reasons.
First, the study considers the months
following any late fee and compares
them to months with no recent late
payment. That comparison is not the
same as comparing to months in which
a payment was late, but a lower late fee
(or even a $0 late fee) was charged.
Second, even if the study had compared
to months where a payment was missed
but no late fee was charged, that
comparison still would not be relevant
to the proposal in that the proposal
would reduce the safe harbor amount to
$8, not completely eliminate the late
fee.
The Bureau notes that the Y–14
seventh-month analysis discussed above
shows that in the surrounding months
reoffending rates trend down with each
month after the last late payment. The
Bureau’s Y–14 seventh-month analysis,
however, does not show a jump in late
payment rates in month seven after the
last late fee, which suggests that the
higher late fee amount during the prior
six months is not contributing to this
downward trend.
The Bureau also notes that the 2013
study by Agarwal et al., discussed above
did not separate the effects of the late
fee itself from other possible
consequences of a late payment, such as
additional finance charges, a lost grace
period, penalty rates, and reporting of
the late payment to a credit bureau
which could affect the consumer’s
credit score. Given these other
consequences of a late payment as
discussed in more detail below and in
part II.G, it is not clear that the
proposal’s lower late fee safe harbor
literature (see also supra note 93) indicating that
consumers learn by trial and error of personal
experience, but the Bureau finds that these studies
are less useful to extrapolate how many more
cardholders would make a late payment on U.S.
credit cards if the late fee safe harbor amount were
lowered.
119 See Agarwal et al., supra note 93.
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amount would meaningfully affect the
decreased chance that consumers will
pay late again after an initial late
payment in ways similar to those
established in this 2013 study.
As discussed above, in adopting the
safe harbor amounts in its 2010 Final
Rule, the Board also considered the
limitations that the United Kingdom’s
OFT placed on credit card default
charges in 2006. The Bureau notes that
it is not aware of evidence suggesting
that the £12 ($21 on the day of the rule,
$13.40 in November 2022) limit the OFT
imposed on default charges (including
late fees) in 2006 meaningfully
increased late payments in the United
Kingdom (U.K.). The OFT ruled on
April 5, 2006, that it would presume
default charges higher than £12 unfair
and challenge the company unless
exceptional business factors drove the
decision for the company to charge
higher fees. As fees were routinely as
high as £25 ($43.75 on the day of the
rule) until that spring, this episode is
the closest to what the Bureau would
foresee as the outcome to its proposal:
a salient reduction in late fees impacting
the entire marketplace at once, letting
both issuers and cardholders learn and
adapt to the lower later fees. The Bureau
solicits comment from the public for
any relevant information on the causal
effects of this U.K. fee reform on missed
or late payments and longer
delinquencies, especially ones leading
to more costly collections than before
the reform.
For the reasons discussed above, the
Bureau preliminarily finds that the
available evidence indicates that the
proposed $8 safe harbor amount for the
first and subsequent late payments
would still have a deterrent effect on
late payments, although that effect may
be lessened by the proposed change to
some extent, and other factors may be
more relevant (or may become more
relevant) towards creating deterrence.
Even if the proposed $8 safe harbor
increases the frequency of late payments
by some percentage, for the reasons
discussed below, the Bureau has
preliminarily determined that some
cardholders may benefit from the
proposed $8 safe harbor threshold
amount. As discussed above, in
considering the appropriate safe harbor
amount for late fees, the Bureau is
guided by the factors in TILA section
149(c), which provides that the Bureau
can consider such other factors that the
Bureau deems necessary or appropriate.
The Bureau preliminarily finds that it is
both necessary and appropriate when
considering whether a late fee is
reasonable and proportional to take into
account the possible impact of lower
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late fees on cardholders’ repayment
behavior and finances.
For the more constrained cardholders,
like subprime borrowers, who pay a
disproportionate proportion of late fees,
the current, higher late fee may be
impacting cardholder repayment
conduct—i.e., the higher late fee amount
could have gone toward a payment on
the account. As discussed in part VII,
the Bureau estimates that reducing the
safe harbor for late fees to $8 would
likely reduce late fee revenue by billions
of dollars. While issuers may respond to
this reduction in revenue from late fees
by adjusting interest rates or other card
terms to offset the lost income, the
Bureau expects less than full offset, with
consumers gaining in total from reduced
late fees. This expected savings would
benefit consumers. The money saved by
cardholders on late fees may go toward
repayment. The 2022 paper by
Grodzicki et al.,120 described above,
with all the caveats noted there, found
such a pattern for subprime cardholders:
A decrease in late fees after the
implementation of the CARD Act
increased borrowing for prime
borrowers but triggered repayment for
subprime cardholders.121 If this
prediction held true for the current
proposed reform, it would imply that
lowering late fees may provide some
benefits to subprime consumers in terms
of a greater ability to repay revolving
debt. This effect might also lower
issuers’ losses from delinquencies, as it
could subsequently reduce the
likelihood and the severity of default in
the population most prone to default.122
As discussed above, in considering
the appropriate safe harbor amount for
late fees, the Bureau is guided by the
factors in TILA section 149(c), which
provides that the Bureau can consider
such other factors that the Bureau
120 Supra
note 113.
the paper found that lower late fees
may cause subprime cardholders to pay late more
often, it also found that lower late fees may cause
subprime cardholders to make a larger payment
when they ultimately make the payment. This
paper explained that this latter effect on subprime
cardholders might result from the lower late fee
amount lessening the need for subprime
cardholders to focus on avoiding late fees and
instead allowing some subprime cardholders to
start to pay more attention to the high cost of their
revolving debt.
122 Even if lower late fees would decrease losses
from delinquencies, issuers may still prefer higher
late fees to maximize profits. As current late fee
levels generally produce profits to issuers on the
average late payment, the Bureau does not take the
prevalence of high fees as strong evidence that
lower fees would raise issuers’ losses from
delinquency. Even if lowering late fee amounts
reduced delinquency, doing so might not be in
issuers’ interest: a $1 reduction in the late fee
amount might decrease delinquency losses by less
than $1 per incident, and thus lower profits.
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121 Although
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deems necessary or appropriate. The
Bureau preliminarily finds that the
combined benefits of these effects are
necessary and appropriate factors to
take into account, along with
deterrence, in determining whether a
late fee safe harbor amount is reasonable
and proportional. The Bureau also
preliminarily finds that a late fee safe
harbor amount of $8 for the first and
subsequent late payments strikes the
appropriate balance of these
considerations.
In addition, the Bureau notes that
card issuers have methods to deter late
payment behavior other than charging
higher late fees. As discussed in part
II.G, for cardholders who typically pay
their balance in full every month (socalled transactors), a late fee is in
addition to new interest incurred for
carrying or revolving a balance. For
these customers who do not roll over a
balance in the month before or after a
late fee is assessed, the loss of a grace
period and coinciding interest charges
may pose a similar or even greater
deterrent effect than the late fee itself.
Card issuers also have other tools to
deter late payment behavior, and
therefore, minimize the potential
frequency and cost to card issuers of late
payments, such as reporting the late
payment to a credit bureau which could
affect the consumer’s credit score,
decreasing the consumer’s credit line,
limiting the cardholder’s earning or
redemption of rewards, and imposing
penalty rates. After 30 or so days, card
issuers typically report delinquencies to
credit bureaus, which can lower the
consumers’ credit scores. Since the
Board’s 2010 Final Rule went into
effect, many credit card issuers,
financial institutions, and third parties
have begun providing free credit scores
to consumers.123 Access to real-time
changes in consumers’ credit scores
have likely increased their awareness of
any decline related to late payments.
Thus, the deterrent effect of any
negative credit score impact is likely
greater than in 2011 and further
encourages payment within one billing
cycle of the due date without the
imposition of additional financial
penalties.
Also, an issuer may take steps to
reduce a cardholder’s credit line and
limit the cardholder’s earning or
redemption of rewards. If a consumer
does not make the required payment by
the due date, § 1026.55(b)(3) permits a
card issuer to take actions to reprice
123 Bureau of Consumer Fin. Prot., The Consumer
Credit Card Market, at 174 to 176 (Dec. 2017) (2017
Report), https://files.consumerfinance.gov/f/
documents/cfpb_consumer-credit-card-marketreport_2017.pdf.
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new transactions on the account
according to a penalty rate in certain
circumstances. After 60 days,
§ 1026.55(b)(4) permits card issuers to
take steps to reprice the entire
outstanding balance on the account
according to a penalty rate in certain
circumstances.
The Bureau also notes that card
issuers have methods to facilitate timely
payments, including, for example,
automatic payment and notification
within a certain number of days (e.g.,
five days) prior to the due date that the
payment is coming due. Both the
availability and adoption of these
methods have increased since the Board
issued its 2010 Final Rule. In 2013,
issuers tracking the number of
consumers making payments online
reported that an average of 38 percent of
consumers made at least one nonautomatic payment online or through
automatic payment; 124 in 2020, 61
percent of active accounts made at least
one non-automatic online payment
online, and 18 percent of accounts made
at least one automatic payment.125 Even
in the past few years, digital enrollment
has grown with 80 percent of active
accounts enrolled in an issuer’s online
portal in 2020 (a 7 percentage point
increase from 2017), 64 percent enrolled
in a mobile app (a 13 percentage point
increase from 2017), and 56 percent
receiving only e-statements (a 12
percentage point increase from 2017).126
Indeed, in response to the ANPR,
several card issuers and their trade
groups noted that card issuers currently
use many of these methods. One large
trade group, for example, noted that
issuers have developed functions such
as automatic payment to help
consumers avoid forgetting to make
monthly payments. This commenter
further asserted that automatic payment
generally allows consumers to choose
an amount to pay each month and a
payment due date based on what best
fits their financial circumstances,
increasing the likelihood that
consumers will be able to pay on time.
A joint comment submitted by several
industry trade groups stated that issuers
promote on-time payments through a
variety of means in addition to late fees,
including multiple payment reminders
sent via mail, email, or text notification
depending on consumer preference.
These commenters further stated that
one issuer reported that as of five
months after rollout of its new alert
system, the issuer’s gross monthly late
124 2013
Report, at 68.
categories are not mutually exclusive.
2021 Report, at 39.
126 2021 Report, at 171.
125 These
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fees were 20 percent lower and the late
fee incidence rate per balance had fallen
by nearly 25 percent. Similarly, a large
credit union trade group noted that
some credit unions already have
systems in place or are currently
contracting with third-party vendors to
offer their members convenient
reminders for upcoming payment due
dates via text message and email.
The Bureau expects these other
consequences to decrease the likelihood
of late payment not only in cases where
issuers consider the deterrence effects of
lower late fees to be insufficient. As
discussed in part VII, issuers may offset
lost revenue from lower late fees by
increasing interest rates, which would
indirectly make late payments more
costly than without this response. Also,
issuers may have less ability to charge
consumers higher late fees to maximize
profits and thus may be more inclined
to take other, more efficient steps to
deter late payments, including
providing timely reminders of an
upcoming due date, well-chosen due
dates aligned with cardholders’ cash
flow, and encouraging automatic
payments.
Consumer conduct. As discussed
above, the Board took consumer
conduct into account in adopting the
higher $35 fee for repeat late fees within
six billing cycles. The Board explained
its belief that ‘‘multiple violations
during a relatively short period can be
associated with increased costs and
credit risk and reflect a more serious
form of consumer conduct than a single
violation.’’ 127
The Bureau has preliminarily
determined that the proposed $8 late fee
safe harbor amount for the first and
subsequent late payments better reflects
a consideration of consumer conduct.
For example, it is not clear from
analysis of the Y–14 data and other
relevant information that multiple
violations during a relatively short
period are associated with increased
credit risk and reflect a more serious
consumer violation. Based on the
account-level Y–14 data, the Bureau
estimated that only 13.6 percent of
accounts incurred a late fee and then no
additional payments were made on that
account. In addition, for accounts that
incurred a late fee, the Bureau estimates
that a third of accounts paid the amount
due within five days of the payment due
date, half the accounts paid the amount
due within 15 days of the payment due
date, and three out of five accounts paid
127 75
FR 37526, 37527 (June 29, 2010).
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the amount due within 30 days of the
payment due date.128
In addition, the Bureau understands
that the Metro 2 reporting format used
by the industry for reporting
information to credit bureaus does not
consider a payment to be late if it is
made within 30 days of the due date.
Thus, for risk management purposes,
the industry itself does not appear to
consider the consumer’s conduct in
paying late to be a serious form of
consumer conduct until the consumer is
30 or more days late. As discussed
above, the Bureau estimates that a
majority of accounts become current
before card issuers even consider the
consumer late for credit reporting
purposes.
The Bureau also recognizes that some
consumers may pay late chronically but
otherwise make a payment within 30
days for a number of reasons, including
cash flow issues, that do not necessarily
indicate that they are at significant risk
of defaulting on the credit. For example,
consumers may make a credit card
payment after the due date from the
next paycheck to smooth out expenses
and avoid paying overdraft fees. The
Bureau notes that a study from 2021
suggests that some consumers who are
paid on a bi-weekly basis may not make
the required payment by the due date
but will make the required payment
within 30 days after the due date from
their next paycheck.129
The Bureau also notes that card
issuers have methods other than late
fees to address credit risk. Specifically,
card issuers may take steps to reduce a
cardholder’s credit line. Also, card
issuers that charge an interest rate are
permitted by § 1026.55(b)(3) to reprice
new transactions on the account
according to a penalty rate in certain
circumstances. In addition, after 60
days, § 1026.55(b)(4) permits these
issuers to take actions to reprice the
entire outstanding balance on the
account according to a penalty rate in
certain circumstances.
The Bureau recognizes that card
issuers do not charge interest on charge
card accounts, and thus would not be
able to use the interest rate charged on
the account to manage credit risk.
Nonetheless, current
§ 1026.52(b)(1)(ii)(C) permits card
128 For more information related to the estimates
using the Y–14 data of how many days after the due
date accounts that incurred a late fee paid the
amount due, see Figure 4 and related discussion in
part VII.
129 Paolina C. Medina, Side Effects of Nudging:
Evidence from a Randomized Intervention in the
Credit Card Market, 34 The Review of Financial
Studies, (May 2021), at 2580–2607, https://doi.org/
10.1093/rfs/hhaa108.
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issuers to impose a late fee that does not
exceed 3 percent of the delinquent
balance on a charge card account that
requires payment of outstanding
balances in full at the end of each
billing cycle, when a charge card issuer
has not received the required payment
for two or more consecutive billing
cycles. As the Board noted in the 2010
Final Rule, this provision is intended to
provide charge card issuers with more
flexibility to charge higher late fees and
thereby manage credit risk when an
account becomes seriously delinquent,
because charge card issuers do not
apply an APR to the account balance
and therefore cannot respond to serious
delinquencies by increasing that rate.130
The proposal would not amend the
current safe harbor set forth in
§ 1026.52(b)(1)(ii)(C).
Consideration of all statutory
factors—preliminary findings and
determinations. In considering all
statutory factors, the Bureau
preliminarily finds that an $8 late fee for
the first and subsequent late payments
better represents a balance of issuer
costs, deterrent effects, consumer
conduct, as well as the benefits to
issuers that result from relying on a safe
harbor amount, like reduced
administrative costs, and the possible
beneficial effects of lower late fees on
subprime cardholders’ repayment
behavior. Further, the Bureau
preliminarily finds that this amount is
supported by careful analysis of the Y–
14 data. Finally, the Bureau notes that
it has taken into consideration changes
in the market, like automatic payment,
that facilitate billing and payment, thus
making it easier for card issuers to
collect timely payments. For these
reasons, the Bureau preliminarily
determines that a late fee amount of $8
for the first and subsequent violations is
presumed to be reasonable and
proportional to the late payment
violation to which the fee relates.
The Bureau seeks comment on all
aspects of its proposal to lower the late
fee safe harbor dollar amounts in
§ 1026.52(b)(1)(ii) to a fee amount of $8
for the first and subsequent violations
and provide that a higher safe harbor
dollar amount for penalty fees occurring
within the same billing cycle or the next
six billing cycles does not apply to late
fees. In particular, the Bureau seeks
comment on whether to set a different
amount and, if so, what amount and
why, including any relevant data or
other information. The Bureau also
seeks comment on whether to retain the
higher safe harbor amount and, if so,
130 See generally, 75 FR 37526, 37544 (June 29,
2010).
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what amount and why, including any
data and other information related to the
deterrent effects of the higher amount or
its effects on consumer conduct.
Further, the Bureau seeks comment on
whether and why to set a staggered late
fee amount with a cap on the maximum
dollar amount, such that card issuers
could impose a fee of a small dollar
amount every certain number of days
until the cap is hit.131 The Bureau seeks
comment on what small dollar amount
and maximum dollar amount cap may
be appropriate and why, including any
relevant data or other information. The
Bureau also seeks comment on whether
the safe harbor threshold for late fees
should be structured as a percentage of
the minimum payment amount, and if
so, what percentage should be used. In
addition, the Bureau seeks comment on
what other revisions may be appropriate
to ensure that credit card late fees
imposed pursuant to the safe harbor
provisions are reasonable and
proportional. In particular, the Bureau
seeks comment on whether, as a
condition of using the safe harbor for
late fees, it may be appropriate to
require card issuers to offer automatic
payment options (such as for the
minimum payment amount), or to
provide notification of the payment due
date within a certain number of days
prior to the due date, or both.
The Bureau further seeks comment on
whether and why to lower the safe
harbor amounts in § 1026.52(b)(1)(ii)(A)
and (B) (including whether and why to
eliminate the higher safe harbor amount
for subsequent violations that occur
during the same billing cycle or in one
of the next six billing cycles) for all
other credit card penalty fees, including
fees for returned payments, over-thelimit transactions, and when payment
on a check that accesses a credit card
account is declined. In particular, the
Bureau seeks comment on what the safe
harbor amounts for such fees should be,
including any relevant data and
information on the costs of such
violations to card issuers. In the
alternative, the Bureau seeks comment
on whether to finalize the proposed safe
harbor for late fees and eliminate the
safe harbors for other penalty fees.
Proposed Amendments to
§ 1026.52(b)(1)(ii) Commentary
In addition to the proposed
amendments to the late fee safe harbor
amounts in § 1026.52(b)(1)(ii), the
Bureau proposes amendments to the
provision’s commentary. The Bureau
131 In the ANPR, the Bureau solicited comment on
a staggered late fee approach but received no
responsive comments.
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proposes these amendments for
purposes of clarity and consistency with
the proposal to lower the late fee safe
harbor amount to a fee amount of $8 for
the first and subsequent violations.
Existing comment 52(b)(1)(ii)–1
explains the circumstances in which a
card issuer may impose a higher penalty
fee amount under § 1026.52(b)(1)(ii)(B)
for a violation of the same type that
occurred during the same billing cycle
or one of the next six billing cycles.
Because § 1026.52(b)(1)(ii)(B) would no
longer apply under the Bureau’s
proposal to limit the late fee safe harbor
amounts to a fee amount of $8 for the
first and subsequent violations, the
Bureau proposes to amend comment
52(b)(1)(ii)–1.i to explain additionally
that a card issuer cannot impose a late
fee in excess of $8, as provided in
proposed § 1026.52(b)(1)(ii), regardless
of whether the card issuer has imposed
a late fee within the six previous billing
cycles. The Bureau also proposes to
amend the illustrative examples in
comment 52(b)(1)(ii)–1.iii.A to remove
references to late fees and replace them
with references to over-the-limit fees, as
§ 1026.52(b)(1)(ii)(B) would still apply
to such fees under the Bureau’s
proposed amendments to
§ 1026.52(b)(1)(ii). In addition, the
Bureau proposes to amend the
illustrative examples in comments
52(b)(1)(ii)–1.iii.B and C to reflect a late
fee amount of $8, consistent with the
proposed amendments to
§ 1026.52(b)(1)(ii), and to make minor
technical changes for consistency with
the proposal.
The Bureau invites comment on all
aspects on these proposed amendments
to the commentary to § 1026.52(b)(1)(ii),
including comment on what additional
amendments may be needed to help
ensure clarity and compliance certainty.
Alternatives Considered
The Bureau considered several
alternatives in developing the proposal
to lower the safe harbor amounts for late
fees. These included proposing to
eliminate for late fees the safe harbor
provisions in § 1026.52(b)(1)(ii)
altogether, in which case card issuers
could only impose late fees in amounts
that issuers determine to be reasonable
and proportional under the cost analysis
provisions in § 1026.52(b)(1)(i). In the
ANPR, the Bureau solicited comment on
several questions related to facilitating
use of the cost analysis provisions and
to eliminating the safe harbor provisions
for late fees. These included requests for
comment on what information card
issuers would use if they were to use the
cost analysis provisions in
§ 1026.52(b)(1)(i) to determine the
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amount of late fees and what additional
details the Bureau may need to provide
concerning how to comply with the cost
analysis provisions, beyond the detail
currently provided in the commentary.
In addition, the Bureau requested
comment on what additional processes
and procedures, if any, the Bureau
should adopt to ensure compliance if
the Bureau were to require that card
issuers use the cost analysis provisions
to determine the amount of late fees.
No commenters expressly supported
eliminating the safe harbor provisions,
and most card issuer and trade group
commenters expressly opposed it. No
card issuers stated that they use the cost
analysis provisions to determine the
amount of late fees. Of the commenters
opposing eliminating the safe harbor
provisions, many expressed their belief
that doing so could result in higher late
fees or an increase in the cost of credit
for consumers. In addition, a large trade
group commenter expressed concern
that eliminating the safe harbor
provisions could increase issuers’
compliance costs in determining the
overall costs resulting from late
payments (placing a disproportionately
high burden on smaller issuers,
community banks, and new entrants)
and potentially result in complicated
formulas to determine costs and
appropriate late fees. A credit union
expressed concern about increased
compliance costs as well and further
noted that those increased costs would
be borne by credit union members.
Another trade group commenter noted
that before eliminating the safe harbor
provisions, the Bureau would have to
take into account all of the factors that
the Bureau is required to consider under
the CARD Act in issuing rules to
establish standards for assessing
whether the amount of any penalty fee
is reasonable and proportional to the
omission or violation to which it relates.
The Bureau seeks comment on what
revisions to the cost analysis provisions
in § 1026.52(b)(1)(i), if any, may be
appropriate to ensure that late fee
amounts determined pursuant to those
provisions are reasonable and
proportional and to facilitate
compliance. The Bureau also seeks
comment on whether to eliminate the
safe harbor provisions for late fees,
rather than lowering the safe harbor
amounts to a fee amount of $8 for the
first and subsequent violations as
proposed. As discussed above, the
Bureau anticipates that, under the
proposal to lower the late fee safe harbor
amount, some card issuers whose precharge-off collection costs are higher
than $8 would opt instead to determine
their late fee amounts under the cost
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analysis provisions. Thus, the Bureau
notes that its requests for comment on
potential revisions to the cost analysis
provisions are relevant to both retaining
the safe harbor provisions as proposed
or eliminating the safe harbor provisions
for late fees.
In particular, the Bureau seeks
comment on what additional guidance,
if any, should be added to the
commentary to § 1026.52(b)(1)(i)
concerning the specific costs and other
factors that card issuers may take into
account in determining late fee
amounts, including any relevant data or
information. Such factors include those
that the Bureau must consider under the
CARD Act, such as deterrence and
consumer conduct, in issuing rules to
establish standards for assessing
whether the amount of any penalty fee
is reasonable and proportional to the
omission or violation to which it relates.
The Bureau also seeks comment on
whether and to what extent to rely on
the Bureau’s analysis of data related to
collection costs, deterrence, and
consumer conduct, as discussed above,
in making any revisions to the cost
analysis provisions. In addition, the
Bureau seeks comment on what
additional requirements related to card
issuers’ internal processes and
procedures for calculating and
documenting costs, if any, the Bureau
should adopt to ensure compliance.
The Bureau also seeks comment on
whether to eliminate the safe harbor for
all other credit card penalty fees,
including fees for returned payments,
over-the-limit transactions, and fees
charged when payment on a check that
accesses a credit card account is
declined. For such fees, the Bureau
seeks particular comment on what
guidance, if any, should be added to the
cost analysis provisions in
§ 1026.52(b)(1)(i) or related commentary
concerning the specific costs and other
factors that card issuers may take into
account in determining that fee amounts
are reasonable and proportional to the
costs of the specific violation, including
any data or information relevant to the
factors that the Bureau must consider
under the CARD Act in issuing rules to
establish standards for assessing
whether the amount of any penalty fee
is reasonable and proportional to the
omission or violation to which it relates.
In addition, the Bureau seeks comments
on what additional requirements related
to card issuers’ internal processes and
procedures for calculating and
documenting costs, if any, the Bureau
should adopt to ensure compliance.
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52(b)(1)(ii)(C)
As noted above, the Bureau is not
proposing to lower the safe harbor
amount of a late fee that card issuers
may impose under the special rule in
§ 1026.52(b)(1)(ii)(C) when a charge card
account becomes seriously delinquent.
Under the special rule, a card issuer
may impose a fee of 3 percent of the
delinquent balance on a charge card
account that requires payment of
outstanding balances in full at the end
of each billing cycle if the card issuer
has not received the required payment
for two or more consecutive billing
cycles. This provision, as discussed
above, is intended to provide charge
card issuers with more flexibility to
charge higher late fees and thereby
manage credit risk when an account
becomes seriously delinquent, because
charge card issuers do not apply an APR
to the account balance and therefore
cannot respond to serious delinquencies
by increasing that rate, as other card
issuers can. For clarity, the Bureau
proposes to amend the special rule to
provide that card issuers may impose a
fee on a charge card account in those
circumstances notwithstanding the
limitation on the amount of a late
payment fee in proposed
§ 1026.52(b)(1)(ii). In addition, the
Bureau proposes to amend comment
52(b)(1)(ii)–3, which provides
illustrative examples of the application
of § 1026.52(b)(1)(ii)(C). The proposed
rule would amend these examples to
use a $8 late fee amount, consistent with
the proposed changes to the late fee safe
harbor amount in proposed
§ 1026.52(b)(1)(ii). The proposed rule
also would amend a cross reference
contained in comment 52(b)(1)(ii)–3.iii
so that it would correctly reference
paragraph i.
52(b)(1)(ii)(D)
Section 1026.52(b)(1)(ii)(D) provides
that the dollar safe harbor amounts for
penalty fees set forth in
§ 1026.52(b)(1)(ii)(A) and (B) will be
adjusted annually by the Bureau to
reflect the changes in the CPI. The
Board included this provision in its
Regulation Z, § 226.52(b)(1)(ii)(D) as
part of its 2010 Final Rule where it
determined that changes in the CPI,
while not a perfect substitute, would be
‘‘sufficiently similar to changes in
issuers’ costs and the deterrent effect of
the safe harbor amounts.’’ 132 In
reaching this determination, the Board
rejected commentators’ arguments that
the Board should adjust the safe harbor
amounts as appropriate through
132 75
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18925
rulemaking because the Board believed
that this approach would be
inefficient.133
The Bureau proposes to no longer
apply the annual adjustments to the safe
harbor amount for late fees. The
proposed rule would accomplish this by
including the $8 proposed late fee safe
harbor amount in the lead in text to
§ 1026.52(b)(1)(ii), instead of including
it in § 1026.52(b)(1)(ii)(A) or (B). Thus,
§ 1026.52(b)(1)(ii)(D), which only
applies the safe harbor adjustment to the
dollar safe harbor amounts in
§ 1026.52(b)(1)(ii)(A) and (B), would no
longer apply to the late fee safe harbor
amount. The Bureau proposes one
technical change to the cross reference
to § 1026.52(b)(1)(ii)(A) and (B) used in
§ 1026.52(b)(1)(ii)(D) to conform to OFR
style requirements. In addition, for
clarity, the proposed rule would amend
the lead-in paragraph in comment
52(b)(1)(ii)–2 to indicate that the
inflation adjustment in
§ 1026.52(b)(1)(ii)(D) does not apply to
late fees. Under the proposal,
§ 1026.52(b)(1)(ii)(D) would continue to
apply to the dollar amount safe harbor
amounts that apply to other penalty
fees, such as over-the-limit fees, and
returned-payment fees. With respect to
the dollar amount of the late fee safe
harbor, the Bureau would then monitor
the safe harbor amount for late fees for
potential adjustments as necessary. In
addition, although the Bureau’s
proposal is limited to late fees given
available data, the Bureau also seeks
comment about whether the same
approach should be taken with respect
to other penalty fees.
The Bureau notes that inflation
adjustments, annual or otherwise, are
not statutorily required. TILA section
149, however, does statutorily require
that any late payment fee or any other
penalty fee or charge, must be
‘‘reasonable and proportional’’ to such
omission or violation. When the Board
determined that the dollar safe harbor
amounts for penalty fees should be
subjected to automatic annual inflation
adjustments, it did not expressly
consider the effect such adjustments
may have on the reasonableness and
proportionality of the late payment fee
(or any other penalty fee). The Board
also did not provide any other data or
evidence to support these adjustments
as necessary. Instead, the Board
summarily stated that automatic annual
adjustment would be ‘‘sufficiently
similar to changes in issuers’ costs and
the deterrent effect of the safe harbor
133 Id.
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amounts’’ 134 and also considered
efficiency, which is not statutorily
required. The Board did not go into
further details on why an automatic
annual adjustment would be similar to
changes in issuers’ costs and the
deterrent effect of the safe harbor
amounts.
The Bureau analyzed relevant data
that was not available to the Board to
take into consideration the statutorily
mandated reasonable and proportional
standard by considering the costs
incurred as a result of the violation in
determining whether a fee amount is
reasonable and proportional. The
Bureau, based on this data, has
preliminarily determined that automatic
adjustments based on the CPI are not
necessarily reflective of how the cost of
late payment to issuers changes over
time and, therefore, may not reflect the
‘‘reasonable and proportional’’ standard
in the statute. While issuers’ costs do
appear to be trending up, it does not
appear that they are doing so lockstep
with inflation particularly when
considering the month-to-month
changes in inflation versus costs.
Additionally, there are factors outside of
inflation that may impact when issuers’
cost goes up and by how much. Figure
2 below shows monthly per-account
collection costs in the Y–14 collection
(for all consumer portfolios with
positive costs that month, solid line)
and the CPI–U price index since 2013
(dashed). Given that the costs fluctuate
more than the price level, any
overarching trend in costs is better dealt
with through ad hoc adjustments when
the safe harbor amounts are revisited.
Thus, the Bureau has considered the
cost incurred as a result of a late
payment violation and has preliminarily
determined that this proposal is more
aligned with Congress’ intent for late
fees to be reasonable and proportional
than the current provision which
requires the Bureau to adjust for
inflation regardless of what the exact
changes are, if any, in actual costs
incurred by the card issuer.
As noted above, the Board also briefly
considered deterrence and efficiency
when making the determination to
implement an automatic adjustment for
inflation. The Bureau has preliminarily
determined that deterrence should not
be the driving factor in whether the late
fee safe harbor amount should be
automatically adjusted according to the
CPI, nor should it outweigh
considerations of issuers’ costs. The
Bureau notes while it is possible for the
deterrent effect of the safe harbor
amount to be eroded year-to-year with
inflation, there are three overriding
considerations as to why that does not
necessarily mean there should be an
automatic adjustment for inflation. First,
the Bureau has preliminarily
determined that it does not intend to
tightly peg the deterrent effect to a
specific value and recognizes there may
be a range of values under which the
deterrent effect would be suitable. The
deterrence of the proposed safe harbor
amount is sufficiently high so that the
Bureau is not concerned by the lesser
deterrence of a potentially eroded real
value under realistic trajectories for
medium-term inflation before any
potential readjustment could be put in
effect. Second, similar to the cost
analysis above, the Bureau preliminarily
finds that the deterrent effect does not
move in lockstep with the CPI. Third
the Bureau monitors the market so,
under this proposal, the Bureau would
be able to make adjustments to the safe
harbor amount on an ad hoc basis based
on this monitoring, at which point the
Bureau would again consider the
deterrent effect when promulgating a
new safe harbor amount. While TILA
section 149 authorizes the Bureau to
consider other factors that the Bureau
deems necessary and important in
issuing rules to establish standards for
assessing whether the amount of any
penalty fee is reasonable and
proportional, the Bureau has
preliminarily determined that
consideration of costs incurred, and the
deterrent effect outweigh consideration
of efficiency to help ensure that late fee
amounts are reasonable and
proportional.
The Bureau solicits comment on this
proposal to eliminate the automatic
annual adjustments to reflect changes in
the CPI for the late fee safe harbor
amount, including data and evidence as
to why the adjustment may or may not
reflect the reasonable and proportional
standard. The Bureau also seeks
134 Id.
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comment on potential future monitoring
or other approaches to ensure that the
late fee amount is consistent with the
reasonable and proportional standard.
The Bureau also solicits comments on
whether automatic annual adjustments
to reflect changes in the CPI should be
eliminated for all other penalty fees
subject to § 1026.52(b), including overthe-limit fees, returned-payment fees,
and declined access check fees.
52(b)(2) Prohibited Fees
As previously discussed, a card issuer
must not impose a fee for violating the
terms or other requirements of a credit
card account under an open-end (not
home-secured) consumer credit plan
unless the dollar amount of the fee is
consistent with § 1026.52(b)(1) and (2).
Section 1026.52(b)(2) provides certain
circumstances where fees are
prohibited. Specifically, § 1026.52(b)(2)
prohibits (1) fees that exceed the dollar
amount associated with the violation;
and (2) multiple fees based on a single
event or transaction.
The Bureau received comments in
response to the ANPR from consumer
group commenters indicating that the
Bureau should prohibit the assessment
of a late fee without first providing
consumers with a period of time after
each due date to make the required
payment (a ‘‘courtesy period’’). These
consumer group commenters noted that
courtesy periods are already utilized by
financial institutions in other financial
products and services. For example,
these consumer group commenters
indicated that mortgage loan contracts
typically provide a courtesy period of 10
or 15 days after the due date during
which time borrowers may make a
payment without penalty.
The Bureau also received comments
from multiple industry commenters
indicating that they already provide
consumers with a courtesy period on
their credit card accounts before a late
fee is assessed on an account. Other
industry commenters also indicated that
card issuers do not take significant
action to collect late payments
immediately after the due date but
instead wait to begin or otherwise
increase activity surrounding collection
of the late payment.
Commenters also noted when card
issuers generally consider a consumer
late from a risk perspective. Consumer
group commenters explained that for
credit reporting purposes, card issuers
typically do not treat a consumer as late
until payment is 30 days past due. This
was additionally supported by (1) an
industry commenter that noted late
payments are not reported to credit
bureaus until a cardholder reaches 30
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days past due; and (2) another industry
commenter that reported they generally
do not hand off accounts to third-party
debt collectors until the cardholder is
continuously delinquent or has repeated
late payments for a period of 2–6
months.
The Bureau also received other
comments from consumer group
commenters that illustrated how delays
beyond consumers’ control contribute to
the assessment of late fees. For example,
consumers who pay electronically may
experience a delay in payment
processing for payments made over
weekends. These unintended late
payments could be avoided with the
implementation of a courtesy period.
In light of these comments, the
Bureau is considering whether to
require a courtesy period, which would
prohibit late fees imposed within 15
calendar days after each payment due
date and be applicable only to late fees
assessed if the card issuer uses the safe
harbor or alternatively, applicable to all
late fees generally (regardless of whether
the card issuer assesses late fees
pursuant to the safe harbor amount set
forth in § 1026.52(b)(1)(ii) or the cost
analysis provisions set forth in
§ 1026.52(b)(1)(i)). The Bureau has
preliminary determined that it may be
appropriate that the late fee amount
essentially be $0 during the courtesy
period because, as noted above, card
issuers may not incur significant costs
to collect late payments immediately
after a late payment violation.
Further, given that the late payments
may be caused by problems with
unavoidable processing delays, the
implementation of a courtesy period
also is consistent with considerations of
consumer conduct and deterrence,
since, in these circumstances, the
consumer attempted to pay timely. To
the extent card issuers face increased
cost from this 15-day courtesy period,
the Bureau also believes that issuers
have options that may not have been as
readily available at the time of the
Board’s 2010 Final Rule to encourage
timely payment, like sending
notifications to consumers to warn them
of payment due dates or facilitating
automatic payment.
The Bureau solicits comments on
whether § 1026.52(b)(2) should be
amended to provide for a courtesy
period which would prohibit late fees
imposed within 15 calendar days after
each payment due date. The Bureau
additionally solicits comment on
whether, if a 15-day courtesy period is
required, the courtesy period should be
applicable only to late fees assessed if
the card issuer is using the late fee safe
harbor amount (in which case
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18927
§ 1026.52(b)(1)(ii) would be amended
instead of § 1026.52(b)(2)) or
alternatively, if the courtesy period
should be applicable generally
(regardless of whether the card issuer
assesses late fees pursuant to the safe
harbor amount set forth in
§ 1026.52(b)(1)(ii) or the cost analysis
provisions set forth in
§ 1026.52(b)(1)(i)). The Bureau also
solicits comment, as well as data, on
whether a courtesy period of fewer or
greater than 15 days may be appropriate.
The Bureau notes that the alternative
of applying a 15-day courtesy period
only to use of the safe harbor late fee
amount may have certain unintended
effects on the possible late fee amounts
assessed under the cost analysis
provisions. To illustrate, using the Y–14
data, the Bureau estimated that a 15-day
courtesy period tied to the safe harbor
would cut the incidence of consumers
charged the proposed $8 safe harbor
amount by as much as half.135 This
would cause card issuers who use the
safe harbor amount to recover as much
as half of what they would recover if a
15-day courtesy period were not
required. Card issuers who use the safe
harbor amount, therefore, would recover
an average of $4 in late fees per late
payment. On the other hand, card
issuers that opt to use the cost analysis
provisions to assess late fees would not
be required to provide a 15-day courtesy
period. This could result in an outcome
where card issuers who used the cost
analysis provisions to determine the late
fee amount could charge a late fee that
is less than the proposed safe harbor
amount, for example $6, but still, on
average, collect more in total late fees
than if they charged the proposed $8
late fee amount. In this example, they
could charge $6 on 100 percent of
incidences, whereas if they used the
proposed $8 safe harbor amount, they
could only charge the proposed $8 on
approximately half of the incidences.
This could lead to a scenario where
consumers who are subject to late fees
determined by the cost analysis
provisions may be assessed a lower late
fee amount than the proposed $8 late fee
safe harbor amount but would be
charged a late fee more frequently than
consumers who are subject to the late
fee safe harbor amount.
The Bureau additionally solicits
comments on whether a 15-day courtesy
period should apply to the other penalty
fees that are subject to § 1026.52(b),
including over-the-limit fees and
135 For more information related to the estimates
using the Y–14 data of how many days after the due
date accounts that incurred a late fee paid the
amount due, see Figure 4 and related discussion in
part VII.
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returned-payment fees, and if so, why it
would be appropriate to apply a 15-day
courtesy period to these other penalty
fees. For example, should the Bureau
provide consumers with (1) 15 calendar
days after the billing cycle ends to bring
the balance below the credit limit to
avoid being charged an over-the-limit
fee; and (2) 15 calendar days after each
due date to make the required periodic
payment to avoid a returned-payment
fee if a payment has been returned. With
respect to declined access checks, is a
15-day courtesy period appropriate and
if so, how should it be structured?
52(b)(2)(i) Fees That Exceed Dollar
Amount Associated With Violation
Section 1026.52(b)(2)(i)(A) provides
that a card issuer must not impose a fee
for violating the terms or other
requirements of a credit card account
under an open-end (not home-secured)
consumer credit plan that exceeds the
dollar amount associated with the
violation. For late fees, accompanying
comment 52(b)(2)(i)–1 provides that the
dollar amount associated with a late
payment is the full amount of the
required minimum periodic payment
due immediately prior to assessment of
the late payment. Thus,
§ 1026.52(b)(2)(i)(A) prohibits a card
issuer from imposing a late payment fee
that exceeds the full amount of the
required minimum periodic payment.
In implementing TILA section 149,
the Board noted that the prohibition of
fees based on violations of the terms or
other requirements of an account that
exceed the dollar amount associated
with the violation as set forth in its
Regulation Z, § 226.52(b)(2)(i)(A) would
be consistent with Congress’ intent to
prohibit penalty fees that are not
reasonable and proportional to the
violation.136 The Board in its reasoning
addressed issuers’ concerns that when
the dollar amount associated with a
violation is small, § 226.52(b)(2)(i)(A)
could limit the penalty fee to an amount
that is neither sufficient to cover the
issuer’s costs nor to deter future
violations.137 The Board explained that
while it is possible that an issuer could
incur costs as a result of a violation that
exceed the dollar amount associated
with that violation, this would not be
the case for most violations.138
Additionally, the Board noted that if
card issuers could not recover all of
their costs when a violation involves a
small dollar amount, prohibiting late
fees that exceed the full amount of the
required minimum periodic payment
would encourage them either to
undertake efforts to reduce the costs
incurred as a result of violations that
involve small dollar amounts or to build
those costs into upfront rates, which
would result in greater transparency for
consumers regarding the cost of using
their credit card accounts.139
Furthermore, the Board considered the
deterrent effect and believed that
violations involving small dollar
amounts are more likely to be
inadvertent and therefore the need for
deterrence is less pronounced.140
The Board also considered whether
compliance with its Regulation Z,
§ 226.52(b)(2)(i)(A) would be
burdensome on card issuers and
concluded that it would not be overly
burdensome.141 The Board explained
that, although card issuers may incur
substantial costs at the outset, because
§ 226.52(b)(2)(i)(A) required a
mathematical determination, issuers
should generally be able to program
their systems to perform the
determination automatically.142
When implementing comment
52(b)(2)(i)–1, the Board clarified that the
dollar amount associated with a late
payment is the full amount of the
required minimum periodic payment
due immediately prior to the assessment
of the late payment. Industry
commenters had argued that the dollar
amount associated with a late payment
should be the outstanding balance on
the account because that is the amount
the issuer stands to lose if the
delinquency continues and the account
eventually becomes a loss.143 However,
the Board explained that relatively few
delinquencies result in losses, and the
violation giving rise to a late payment
fee is the consumer’s failure to make the
required minimum periodic payment by
the payment due date.
The Bureau proposes to amend
§ 1026.52(b)(2)(i)(A) to limit the dollar
amount associated with a late payment
to 25 percent of the required minimum
periodic payment due immediately
prior to assessment of the late payment.
The Bureau also proposes to revise
comment 52(b)(2)(i)–1 in the following
two ways: (1) to clarify that the required
minimum periodic payment due
immediately prior to assessment of the
late payment is the amount that the
consumer is required to pay to avoid the
late payment fee, including as
applicable any missed payments and
fees assessed from prior billing cycles;
139 Id.
140 Id.
136 75
FR 37526, 37544 (June 29, 2010).
137 Id. at 37545.
138 Id.
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and (2) to revise several examples
consistent with the proposed 25 percent
limitation.
Like the Board’s reasoning in the 2010
Final Rule, this proposal intends to
ensure that late fees are reasonable and
proportional, even late fees that are
imposed when consumers are late in
paying small minimum payments.
However, the Bureau has preliminarily
determined that restricting the late fee
to 25 percent of the minimum payment
is more consistent with Congress’ intent
to prohibit penalty fees that are not
reasonable and proportional to the
violation than the current rule that
allows for a card issuer to potentially
charge a late fee that is 100 percent of
the minimum payment.
For example, when considering
collection costs incurred by card
issuers, it is likely that allowing a late
fee that is 100 percent of the minimum
payment is not reasonable and
proportional to such costs. Generally,
most card issuers do not incur
collection costs that are 100 percent of
the amount they are trying to collect.
The Bureau has preliminarily
determined that lowering the limitation
on late fees to 25 percent of the
minimum payment due would still
likely allow card issuers to cover
contingency fees paid to third-party
agencies for collecting the amount of the
minimum payment prior to account
charge-off. The Bureau understands,
based on information requests issued
under order for purposes of compiling
the Bureau’s periodic CARD Act reports
to Congress, that card issuers that
contract with third-party agencies for
pre-charge-off collections pay a
contingency fee that is a percentage of
the amount collected, which may
include an amount (if collected)
exceeding the minimum payment.
These contingency fees can range from
9.5 percent to 23 percent, further
supporting that the proposed 25 percent
of minimum payment due is more
reasonable and proportional than
permitting 100 percent of the minimum
payment.144 It appears that the Board
did not consider or have access to such
figures when it limited the dollar
amount associated with a late payment
to 100 percent of the required minimum
periodic payment. With this additional
data, the Bureau proposes a limitation
on late fees that it has preliminarily
determined is more reasonable and
proportional than what was set forth in
the Board’s 2010 Final Rule.
The Bureau recognizes that the
proposed 25 percent limitation would
most likely impact the amount of the
142 Id.
143 Id.
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late fee a card issuer can charge when
(1) the minimum payment is small, and
(2) the card issuer is using the cost
analysis provisions in § 1026.52(b)(1)(i)
generally to set the late fee amount.
Based on the distribution of minimum
payments in the Y–14 data, the Bureau
estimates that this may occur
infrequently. Y–14 data from October
2021 to September 2022 shows that for
those months in which an account was
late, only 12.7 percent of accounts had
a minimum payment of $40 or less.
Additionally for those months in which
an account was late, at least 48.5
percent of accounts had a minimum
payment above $100. If a card issuer is
using the proposed late fee safe harbor
of $8, however, the instances where 25
percent of the minimum payment may
be less than the proposed $8 safe harbor
appear to be even less frequent. For
instance, based on the distribution of
minimum payments due in the Y–14 on
a monthly basis from October 2021 to
September 2022, if card issuers could
only charge up to 25 percent of the
minimum payment, only 7.7 percent of
accounts would have been charged a
late fee of less than $8. Figure 3 plots
the cumulative distribution function 145
of total payments due in the range of $1
to $100 in the account-level Y–14 data,
for all months payments were late
between October 2021 and September
2022.
Additionally, when the dollar amount
associated with the late payment is
small, the Bureau recognizes that the
proposal could have the potential to
limit the late fee to an amount that is
insufficient to cover a card issuer’s costs
in collecting the late payment. However,
permitting a late fee that is 100 percent
of the minimum payment does not
appear to be reasonable and
proportional to the consumer’s conduct
of paying late when the minimum
payment is small. For instance, in
situations where the dollar amount
associated with the late payment is
small and the card issuer is permitted to
charge a late fee that is 100 percent of
the minimum payment then a consumer
is essentially required to pay double the
amount of a missed payment in the next
billing cycle in addition to the
minimum payment due for that next
billing cycle. This result is neither
reasonable nor proportional to the
consumer’s conduct in paying late.
Furthermore, as the Board noted in its
2010 Final Rule and which the Bureau
has preliminarily determined is still
relevant here, to the extent card issuers
cannot recover all of their costs through
a late fee when a late payment involves
a small dollar amount, the proposed
limitation will likely encourage card
issuers to undertake efforts to either
reduce costs incurred as a result of
violations that involve small dollar
amounts or to build those costs into
upfront rates, which has the additional
benefit of resulting in greater
transparency for consumers regarding
the cost of using credit card accounts.
Finally, the Bureau has preliminarily
determined that the Board’s explanation
that compliance would not be overly
burdensome also remains applicable to
the Bureau’s proposal. The proposal
would similarly require a mathematical
determination that issuers should
generally be able to program their
systems to perform automatically.
In addition, as discussed above, the
Bureau proposes to revise comment
52(b)(2)(i)–1 to clarify that the required
minimum periodic payment due
immediately prior to assessment of the
late payment is the amount that the
consumer is required to pay to avoid the
late payment fee, including as
applicable any missed payments and
fees assessed from prior billing cycles.
The Bureau understands that card
issuers report two payment amounts
when responding to Y–14 collection
efforts, a minimum payment calculated
just for that billing cycle and the total
amount that is required to be paid that
billing cycle which includes missed
payment amounts or fees assessed. The
Bureau proposes this revision to
comment 52(b)(2)(i)–1 to address any
potential confusion about the payment
amount to which the proposed 25
percent limitation would apply.
The Bureau solicits comment on the
proposed 25 percent limitation
discussed above. The Bureau also
solicits comment on whether the dollar
amount associated with the other
penalty fees covered by § 1026.52(b)
should be limited to 25 percent of the
dollar amount associated with the
violation. For example, (1) should overthe-limit fees be limited to 25 percent of
the amount of credit extended by the
145 The values plotted vertically are the shares of
account-months that paid late with minimum
payments at or below the integer dollar amounts
shown on the horizontal axis.
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card issuer in excess of the credit limit
during the billing cycle in which the
over-the-limit fee is imposed; 146 (2)
should the returned-payment fee be
limited to 25 percent of the amount of
the required minimum periodic
payment due immediately prior to the
date on which the payment is returned
to the card issuer; 147 and (3) should the
declined access check fee be limited to
25 percent of the amount of the
check.148
52(b)(2)(ii) Multiple Fees Based on a
Single Event or Transaction
Section 1026.52(b)(2)(ii) prohibits
card issuers from imposing multiple
penalty fees based on a single event or
transaction. The Bureau is not
proposing to amend the text of
§ 1026.52(b)(2)(ii). However, the Bureau
proposes to revise comment 52(b)(2)(ii)–
1 to clarify several examples illustrating
this requirement. Specifically, the
proposed rule would amend several
examples in comment 52(b)(2)(ii)–1 to
reflect a late fee amount of $8,
consistent with the proposed
amendments to § 1026.52(b)(1)(ii), and
to make minor technical changes for
consistency with the proposal.
Section 1026.60 Credit and Charge
Card Applications and Solicitations
60(a) General Rules
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60(a)(2) Form of Disclosures; Tabular
Format
Section 1026.60(a) provides that a
card issuer must provide the disclosures
set forth in § 1026.60 on or with a
solicitation or an application to open a
credit or charge card account. Section
1026.60(a)(2) provides certain format
requirements for the disclosures
required under § 1026.60. Section
1026.60(a)(2)(i) provides that in certain
circumstances the disclosures required
by § 1026.60 generally must be
disclosed in a tabular format. Section
1026.60(a)(2)(ii) provides that when a
tabular format is required, certain
disclosures must be disclosed in the
table using bold text, including any late
fee amounts and any maximum limits
on late fee amounts required to be
disclosed under § 1026.60(b)(9).
Comment 60(a)(2)–5.ii includes a late
fee example to illustrate the requirement
that any maximum limits on fee
146 See comment 52(b)(2)(i)–3 for an explanation
of the dollar amount associated with an over-thelimit violation.
147 See comment 52(b)(2)(i)–2 for an explanation
of the dollar amount associated with a returnedpayment violation.
148 See comment 52(b)(2)(i)–4 for an explanation
of the dollar amount associated with a declined
access check violation.
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amounts must be disclosed in bold text.
The current example assumes that a
card issuer’s late fee will not exceed
$35. The proposed rule would amend
the example to assume that the late fee
will not exceed $8, so that the
maximum late fee amount in the
example would be consistent with the
proposed $8 late fee safe harbor amount
set forth in proposed § 1026.52(b)(1)(ii).
Appendix G to Part 1026—Open-End
Model Forms and Clauses
Appendix G to part 1026 generally
provides model or sample forms or
clauses for complying with certain
disclosure requirements applicable to
open-end credit plans, including a
credit card account under an open-end
(not home-secured) consumer credit
plan. The following five sample forms
or clauses set forth an example of the
maximum late fee amount of ‘‘Up to
$35’’ under the heading ‘‘Late
Payment’’: (1) G–10(B); (2) G–10(C); (3)
G–10(E); (4) G–17(B); and (5) G–17(C).
The following two sample forms set
forth an example of the maximum late
fee amount of ‘‘Up to $35’’ under the
heading ‘‘Late Payment Warning’’: (1)
G–18(D); and (2) G–18(F). Sample form
G–21 sets forth an example of the
maximum late fee amount of ‘‘Up to
$35’’ under the heading ‘‘Late Payment
Fee.’’ The following two sample form or
clause set forth an example of the late
fee amount ($35) a consumer may incur
if the consumer does not pay the
required amount by the due date under
the heading ‘‘Late Payment Warning’’:
(1) G–18(B); and (2) G–18(G). The
following three sample forms set forth
an example of the late fee amount ($35)
that the consumer was charged in the
particular billing cycle under the
heading ‘‘Fees’’: (1) G–18(A); (2) G–
18(F); and (3) G–18(G).
The Bureau solicits comment on
whether the late fee amounts of $35 in
these sample forms or clauses, as
applicable, should be revised to set forth
late fee amounts of $8, and whether the
maximum late fee amounts of ‘‘Up to
$35’’ in these sample forms or clauses,
as applicable, should be revised to set
forth a maximum late fee amount of ‘‘Up
to $8’’ so that the late fee amounts and
maximum late fee amounts in the
examples are consistent with the
proposed $8 late fee safe harbor amount
set forth in proposed § 1026.52(b)(1)(ii).
The Bureau notes that the 11 forms or
clauses discussed above are just
samples; card issuers would need to
disclose the late fee amount that they
charge or the maximum late fee amount
on the account, as applicable, consistent
with the restrictions in § 1026.52(b).
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In addition, as discussed in the
section-by-section analysis of
§ 1026.52(b)(2)(i), the Bureau solicits
comment on whether to restrict card
issuers from imposing a late fee on a
credit card account, unless the
consumer has not made the required
payment within 15 calendar days
following the due date. If the Bureau
were to adopt such a limitation, the
Bureau solicits comment on whether the
following 10 sample forms or clauses
that currently disclose an example of
the late fee amount ($35) or maximum
late fee amount (‘‘Up to $35’’) that could
be incurred on the account should be
revised to disclose that a late fee will
only be charged if the consumer does
not make the required payment within
15 calendar days of the due date: (1) G–
10(B); (2) G–10(C); (3) G–10(E); (4) G–
17(B); (5) G–17(C); (6) G–18(B); (7) G–
18(D); (8) G–18(F),149 (9) G–18(G); 150
and (10) G–21.151 If such a disclosure
were required, the Bureau also solicits
comment on effective ways to help
ensure that consumers understand that
a 15-day courtesy period only relates to
the late fee, and not to other possible
consequences of paying late, such as the
loss of a grace period or the application
of a penalty rate.
In addition, the Bureau notes that the
following five samples forms also
include disclosures about maximum
penalty fee amounts of ‘‘Up to $35’’ for
over-the-limit fees 152 and returnedpayment fees: (1) G–10(B); (2) G–10(C);
149 Sample Form G–18(F) contains two examples
of late fees—one example is the maximum late fee
of ‘‘Up to $35’’ under the heading ‘‘Late Fee
Warning’’ and the other example is the late fee ($35)
that was charged to the consumer in the particular
billing cycle under the heading ‘‘Fees.’’ The Bureau
solicits comment only on whether the 15-day
courtesy period should be incorporated into the
‘‘Late Fee Warning’’ to indicate the late fee would
only be charged if the consumer does not make the
required payment within 15 calendar days after
each due date. The 15-day courtesy period
disclosure would not be appropriate for the
example of the late fee under the heading ‘‘Fee.’’
150 Sample Form G–18(G) contains two examples
of late fees—one example is the late fee of ‘‘$35’’
under the heading ‘‘Late Fee Warning’’ and the
other example is the late fee ($35) that was charged
to the consumer in the particular billing cycle
under the heading ‘‘Fees.’’ The Bureau solicits
comment only on whether the 15-day courtesy
period should be incorporated into the ‘‘Late Fee
Warning’’ to indicate the late fee would only be
charged if the consumer does not make the required
payment within 15 calendar days after each due
date. The 15-day courtesy period disclosure would
not be appropriate for the example of the late fee
under the heading ‘‘Fee.’’
151 Sample Form G–18(A) only provides an
example of a late fee that has been charged on the
account in that billing cycle (see late fee disclosed
under the ‘‘Fees’’ heading), so a disclosure of the
15-day courtesy period would not be appropriate
for this disclosure.
152 These sample forms refer to over-the-limit fees
as ‘‘over-the-credit-limit fees.’’
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(3) G–10(E); (4) G–17(B); and (5) G–
17(C). As discussed in the section-bysection analysis of § 1026.52(b)(1)(ii),
the Bureau solicits comment on whether
the $8 safe harbor threshold amount that
is being proposed for late fees should
also apply to other penalty fees,
including over-the-limit fees and
returned-payment fees. If the Bureau
were to adopt the $8 safe harbor
threshold amount for all penalty fees,
the Bureau solicits comment on whether
the Bureau should revise the maximum
amount of the over-the-credit-limit fees
and returned-payment fees shown on
these forms to be ‘‘Up to $8.’’ Moreover,
in the section-by-section analysis of
§ 1026.52(b)(2)(i), the Bureau solicits
comment on whether the 15-day
courtesy period should be provided
with respect to all penalty fee, including
the over-the-credit-limit fees and
returned-payment fees. If the Bureau
were to adopt the 15-day courtesy
period to all penalty fees, the Bureau
solicit comment on the 15-day courtesy
period should be disclosed in the five
sample forms discussed above with
respect to the over-the-limit fee and the
returned-payment fee.
VI. Effective Date
The Bureau proposes that the final
rule, if adopted, would take effect 60
days after publication in the Federal
Register. The Bureau solicits comment
on whether the Bureau should provide
a mandatory compliance date that is
after the effective date for the proposed
changes, if adopted, to the limitations
and prohibitions on late fees in
§ 1026.52(b)(1) and (b)(2), other than the
proposed change to
§ 1026.52(b)(1)(ii)(D) that would provide
that future inflation adjustments for safe
harbor amounts do not apply to the late
fee safe harbor amount. Do card issuers
need additional time after the effective
date to make changes to their
disclosures to reflect the changes in the
late fee amounts that they are charging
on credit card accounts? If so, when
should compliance with the proposed
changes, if adopted, be mandatory?
Separately, under TILA section
105(d), Bureau regulations requiring any
disclosure which differs from
disclosures previously required by part
A, part D, or part E shall have an
effective date of October 1 which
follows by at least six months the date
of promulgation subject to certain
exceptions.153
To the extent that TILA section 105(d)
may apply to any proposed changes
requiring disclosures, it would not
necessitate the October 1 effective date
153 15
U.S.C. 1604(d).
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for purposes of the late fee disclosure
for two reasons. First, under Regulation
Z, card issuers are currently required to
disclose the late fees amounts, or
maximum late fees amounts, as
applicable, that apply to credit card
accounts in certain disclosures, and the
disclosure of those late fee amounts
must reflect the terms of the legal
obligation between the parties.154 In
other words, this proposal, if finalized,
would not differ from the current
requirement to disclose late fee
amounts; instead, it would solely result
in a change to the amount of the late fee
disclosed for issuers using the safe
harbor. Second, this change in amount
applies to the safe harbor, which is an
amount that card issuers may elect but
are not required to use.
If the Bureau were to finalize the 15day courtesy period on which the
Bureau solicits comments as discussed
in the section-by-section analysis of
§ 1026.52(b)(2)(i), consistent with TILA
section 105(d), the Bureau solicits
comment as to whether that courtesy
period and potential disclosure
language should have an effective date
of ‘‘October 1 which follows by at least
six months the date of
promulgation.’’ 155
VII. Dodd-Frank Act Section 1022(b)
Analysis
A. Overview
In developing this proposed rule, the
Bureau has considered the proposed
rule’s potential benefits, costs, and
impacts in accordance with section
1022(b)(2)(A) of the Consumer Financial
Protection Act of 2010 (CFPA).156 The
Bureau requests comment on the
preliminary analysis presented below
and submissions of additional data that
could inform the Bureau’s analysis of
the benefits, costs, and impacts. In
developing the proposed rule, the
Bureau has consulted or offered to
consult with the appropriate prudential
regulators and other Federal agencies,
including regarding the consistency of
this proposed rule with any prudential,
market, or systemic objectives
administered by those agencies, in
accordance with section 1022(b)(2)(B) of
the CFPA.157 The Bureau also consulted
with agencies described in TILA section
149.158
154 Section 1026.5(c) requires that ‘‘disclosures
shall reflect the terms of the legal obligation
between the parties.’’
155 15 U.S.C. 1604(d).
156 12 U.S.C. 5512(b)(2)(A).
157 12 U.S.C. 5512(b)(2)(B).
158 15 U.S.C. 1665d(b) and 1665d(e).
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18931
B. Data Limitations and Quantification
of Benefits, Costs, and Impacts
The discussion below relies on
information that the Bureau has
obtained from industry, other regulatory
agencies, and publicly available sources,
including reports published by the
Bureau. These sources form the basis for
the Bureau’s consideration of the likely
impacts of the proposed rule. The
Bureau provides estimates, to the extent
possible, of the potential benefits and
costs to consumers and covered persons
of this proposal, given available data.
Specifically, this discussion relies on
the Bureau’s analysis of both portfolio
and account data from the Y–14
collection, as described in part III.C
above. The discussion also relies on
data collected directly from a diverse set
of credit card issuers to support the
Bureau’s biennial report on the state of
the consumer credit card market as
required by the CARD Act.159 The
Bureau also consulted the academic
literature, as well as public comments in
response to the Board’s 2010 Final Rule
and the Bureau’s ANPR that preceded
this proposal.
The Bureau acknowledges several
important limitations that prevent a full
determination of benefits, costs, and
impacts. Quantifying the benefits, costs,
and impacts requires quantifying
consumer and card issuer responses to
the proposed changes, and the Bureau
finds the body of knowledge on relevant
behavioral responses and elasticities
incomplete. In particular, the Bureau is
not aware of relevant, reliable, and
quantified evidence that could be used
to predict how changes to late fees
would affect late payments and
delinquencies or the expected
substitution effects across credit cards
and between credit cards and other
forms of credit. Similarly, the Bureau
believes there is little reliable
quantitative evidence available on the
cost and effectiveness of steps issuers
might take to facilitate timely
repayment, collect efficiently, reprice
any of their services, remunerate their
staff, suppliers, or sources of capital
differently, or enter or exit any or all
segments of the credit card market. The
Bureau also believes there is little
relevant evidence available on the
impacts the proposed changes to the late
fee provisions would have on charge
cards or the effects of these potential
changes on other penalty fees. Thus,
while the data and research available to
the Bureau provide an important basis
for understanding the likely effects of
the proposal, the data and research are
159 2021
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not sufficient to fully quantify the
potential effects of the proposal for
consumers and issuers. This reflects in
part the fact that the effects of the
proposal would depend on choices
made by independent actors in response
to the proposal, and the data and
research available to the Bureau do not
permit reliable predictions of those
choices.
In light of these data limitations, the
analysis below provides quantitative
estimates where possible and a
qualitative discussion of the proposed
rule’s benefits, costs, and impacts.
General economic principles and the
Bureau’s expertise, together with the
available data, provide insight into these
benefits, costs, and impacts. The Bureau
requests additional data or studies that
could help quantify the benefits and
costs to consumers and covered persons
of the proposed rule.
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C. Baseline for Analysis
In evaluating the proposal’s benefits,
costs, and impacts, the Bureau considers
the impacts against a baseline in which
the Bureau takes no action. This
baseline includes existing regulations
and the current state of the market. In
particular, it assumes (1) the
continuation of the existing safe harbor
amounts for credit card late fees,
currently $30 generally and $41 for each
subsequent late payment occurring in
one of the next six billing cycles, and (2)
that these amounts would continue to
be adjusted when there are changes to
the CPI in accordance with the current
provision in § 1026.52(b)(1)(ii)(D).
D. Potential Benefits and Costs to
Consumers and Covered Persons
This section discusses the benefits
and costs to consumers and covered
persons of (1) the proposed amendment
to § 1026.52(b)(1)(ii) to lower the safe
harbor dollar amount for late fees to $8
and no longer apply to late fees a higher
safe harbor dollar amount for
subsequent violations of the same type
that occur during the same billing cycle
or in one of the next six billing cycles;
(2) the proposed amendment to
§ 1026.52(b)(2)(i)(A) to provide that late
fee amounts must not exceed 25 percent
of the required payment; and (3) the
proposal to no longer apply inflation
adjustments set forth in current
§ 1026.52(b)(1)(ii)(D) to the safe harbor
amount for late fees. The proposal
would also amend certain other
comments to clarify the application of
the rule and make conforming
adjustments. The Bureau does not
separately discuss the benefits and costs
of these other amendments but believes
they will generally lower compliance
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costs for card issuers and facilitate
consumer understanding of the rule.
Finally, the discussion below also
considers the benefits and costs of
certain other alternatives to the
proposed provisions on which the
Bureau is seeking comment in part V.
Potential Benefits and Costs to
Consumers and Covered Persons of the
Proposed Late Fee Safe Harbor Changes
The Bureau proposes to amend
§ 1026.52(b)(1)(ii) to lower the safe
harbor amounts for late fees—currently
set at $30 and $41 for a first and
subsequent violation, respectively—to a
late fee amount of $8 for the first and
subsequent violations.160 The Bureau’s
proposal would eliminate the higher
safe harbor amount for subsequent late
payment violations.
Potential Benefits and Costs to
Consumers of the Proposed Late Fee
Safe Harbor Changes
In general, the proposal to lower the
safe harbor amount for late fees to $8 for
first and subsequent violations would
benefit consumers by reducing the
amount they pay through late fees. This
direct benefit may be offset to the extent
that card issuers raise other prices in
response and potentially if consumers
respond to reduced late fees in ways
that harm them in the long run. The
discussion below begins with the direct
benefits from lower fees, then turns to
the possibility that those benefits are
offset through changes to other prices,
and then addresses the potential effects
on consumers of changes to late
payment behavior.
The direct benefits to consumers
could be as high as the fees saved with
the $8 fee amount on violations without
or with a recent prior violation—that is,
the difference between fees currently
charged and the lower $8 amount. The
Bureau previously estimated that
aggregate late fees assessed for issuers in
the Y–14+ data were $14 billion in 2019
and $12 billion in 2020 and that the
average late fee charged was $31 in
2020.161 Thus, if fees were reduced to
$8, it would have reduced aggregate late
fees charged to consumers by several
billion dollars. To estimate the extent of
the reduction, the Bureau examined Y–
14 account-level data for the 12-month
period from September 2021 to August
160 As discussed in the section-by-section analysis
of § 1026.52(b)(1)(ii)(C) in part V, the Bureau is not
proposing to lower or otherwise change the safe
harbor amount of a late fee that card issuers may
impose when a charge card account becomes
seriously delinquent.
161 Late Fee Report, at 4. As discussed in part
III.C, the Y–14+ data includes information from the
Board’s Y–14 data and a diverse group of
specialized issuers.
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2022. The issuers in this sample
represent an estimated 73 percent of
aggregate credit card balances and
reported collecting $5.688 billion in late
fees during the period, and the Bureau
estimates that the collected fees would
have been $1.451 billion, or 74.6
percent lower, if fees had been $8 rather
than the fees actually collected.162 The
Bureau does not have data from this
recent period for any issuers other than
those included in the Y–14 data.
Assuming that the 73 percent of
balances covered by these issuers with
collection costs in the Y–14 data
collection most recently is
representative of the fee structure and
incidence of the entire market, these
figures would have implied $5.8 billion
savings for consumers (not including
any fees charged but not ultimately
collected). However, the Y–14+ data
suggest that late fee revenue per account
at these Y–14 issuers is less than for
other issuers. This implies a larger
reduction in fee revenue at issuers
excluded from the sample, meaning that
$5.8 billion is therefore likely to be an
underestimate of the potential reduction
in fees. If the 74.6 percent reduction in
fee revenue were applied to the total
estimated $12 billion in late fees from
2020, it would imply a reduction in fee
revenue of approximately $9 billion.
The estimated benefits to consumers
may be lower than this, considering that
smaller issuers, which make up many of
the issuers not in the Y–14 collection,
currently charge lower fees on average.
In 2020, the average late fee for issuers
in the Y–14+ data was $31. Based on the
agreements in the Bureau’s credit card
agreement database, in 2020, the modal
maximum disclosed late fee for smaller
issuers was $25. Specifically,
cardholders of these smaller issuers who
pay late would benefit less from the
proposed changes to the late fee safe
harbor amounts than those of major
issuers charging late fees closer to the
existing safe harbor threshold amounts.
Conversely, the aggregate benefit to
consumers will be higher than this
estimate if issuers not in the Y–14
charge more late fees than the issuers in
the Y–14 data. The Bureau’s Y–14+
survey suggests that large issuers
162 By adjusting the collected late fee revenue
with how assessed fee amounts would have
changed, this analysis disregards the apparent but
immaterial benefits to accounts whose assessed fees
are not collected (but charged off). The Bureau
estimates that this affects as much as 14 percent of
late fee incidents. Also, as many as 5 percent of
assessed late fees are reversed in later months
(within-month waivers and reversals might already
be netted out in the account data the Y–14
collection collects). The analysis here applied the
same cap to reversals as to the original fees, thus
minimizing the overcounting of benefits.
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outside the Y–14 charge high late fee
amounts and generate more late fee
revenue per outstanding balances.
Smaller issuers might also have enough
late payment violations to cancel out the
effect of small fee amounts on saved fees
per incident.163
The benefits to consumers will be
lower if issuers choose to set late fee
amounts higher than the safe harbor
amount by relying on cost analysis
provisions in § 1026.52(b)(1)(i). Based
on the available recent Y–14 data, the
Bureau expects that fewer than four of
the twelve covered issuers may use the
cost analysis provisions to charge late
fee amounts above $8 in the near future
based on their reported pre-charge-off
collection costs per paid violation. The
Bureau’s calculations suggest that if
these major issuers relied on the cost
analysis provisions in § 1026.52(b)(1)(i)
while the others in the Y–14 data used
the safe harbor amount, it would lower
the mechanical impact of the proposed
safe harbor amounts by 3 percent
relative to the case of all Y–14 issuers
charging late fees of $8 (from an
estimated fee reduction of $4.23 billion
for these Y–14 issuers to an estimated
$4.11 billion), representing a reduction
in fees collected of 72.3 percent for
these issuers.164 Assuming that the 73
percent of balances covered by these
issuers with collection costs in the Y–
14 data collection most recently is
representative of the fee structure and
incidence of the entire market, these
figures would have implied $5.6 billion
savings for consumers (not including
any fees charged but not ultimately
collected). However, as discussed above,
the Y–14+ data suggest that late fee
revenue per account at these Y–14
issuers is less than for other issuers.
This implies a larger reduction in fee
revenue at issuers excluded from the
sample, meaning that $5.6 billion is
therefore likely to be an underestimate
163 The Board has been calculating quarterly
credit card delinquency and charge-off rates from
FFIEC Call Reports. The share of delinquent loans
among loans outstanding has been around 2–3
times higher at banks outside the top 100 by
consolidated foreign and domestic assets following
2017. The ratio of net credit card charge-offs over
the average level of loans outstanding has been
around 2 times higher among banks not in the top
100 since 2017. Bd. of Governors of the Fed. Rsrv.
Sys., Charge-Off and Delinquency Rates on Loans
and Leases at Commercial. https://
www.federalreserve.gov/releases/chargeoff/
default.htm (last updated Nov. 22, 2022).
164 This analysis assumes each issuer sets late fees
for all their credit card products using only the safe
harbor in § 1026.52(b)(1)(ii) or only the cost analysis
provisions in § 1026.52(b)(1)(i). In practice, some
issuers may use the safe harbor amount for some
credit card products and the cost analysis
provisions for others, which could lead the revenue
impact of the proposed safe harbor amount to be
different among issuers in the Y–14.
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of the potential reduction in fees. If the
72.3 percent reduction in fee revenue
were applied to the total estimated $12
billion in late fees from 2020, it would
imply a reduction in fee revenue of
approximately $9 billion.
While the Bureau does not have
comparable data on the collection costs
of smaller issuers, the lower late fee
amount they typically set suggests that
a smaller share of smaller issuers than
large issuers are likely to use the cost
analysis provisions in § 1026.52(b)(1)(i).
Consumer gains when issuers use the
cost analysis provisions would be even
lower if the cost analysis imposes
additional costs on the issuers who
resort to it, and, in turn, those issuers
shift these costs to their cardholders.
However, the Bureau expects these
administrative costs to be small relative
to revenue.
The above estimates do not consider
potential responses by consumers to
lower late fees—in particular, the
possibility that consumers are more
likely to miss a payment due date if the
fee for doing so is reduced. If this occurs
and more consumers make untimely
payments, consumers could face costs
for doing so, including costs like
increased penalty interest rates or lower
credit scores. Such a response would
affect the estimates above, as well as the
final incidence of the benefits and the
burden. As discussed in part V above
concerning deterrence, however, the
available evidence (see the section-bysection analysis of § 1026.52(b)(2)(ii) in
part V) leads the Bureau to expect that
a $8 late fee would still have a deterrent
effect on late payments, although that
effect may be lessened by the proposed
change to some extent, and other factors
may be more relevant (or may become
more relevant) towards creating
deterrence. Even with a late fee of $8,
consumers would have incentives to
make their minimum payment on time
to avoid the late fee and other potential
consequences of paying late, such as the
potential loss of the grace period, and
potential credit reporting consequences.
To the extent consumers are late in
paying because they are inattentive to
their account or because they are so
cash-constrained that they are unable to
make a minimum payment, the amount
of the late fee may have little effect on
whether they pay late. The Bureau,
however, seeks comment on these
potential costs to consumers, including
data and information as to whether
lower late fees for the first or subsequent
payments may result in consumers
being more likely to pay late and, if so,
potential costs to consumers in terms of
potential penalties or lower credit
scores.
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To the extent consumers who pay on
time when faced with current late fees
would instead rationally choose to make
a late payment in response to lower late
fees that would result from the proposal,
those consumers would benefit from the
additional flexibility that a lower late
fee would afford. For such consumers,
the benefit of delaying the minimum
payment past the due date, net of the
perceived other financial consequences
of missing the due date, must be less
than their account’s existing late fees
but greater than the fees that would
result from the proposal. Their benefit
from the rule would be less than the
difference between the two fees, but it
would still add to the total consumer
gains from the proposal. More generally,
all consumers would benefit from the
option value of managing a potential
episode of financial distress at lower
costs if and when necessary.
Since the proposal would reduce
issuers’ revenue from late fees, issuers
may respond by adjusting interest rates
or other card terms to offset the lost
income. Issuer responses will affect both
the sum of consumer gains and their
distribution across market segments and
populations. Total consumer gains will
be the lowest if issuers make up for all
lost revenue and any potential cost
increase by raising revenue by changing
other consumer prices. This full offset
could manifest in higher maintenance
fees, lower rewards, or higher interest
on interest-paying accounts.
Offsetting price increases are most
likely where markets are most
competitive since, in competitive
markets, any reduction in revenue is
likely to drive some firms out of the
market, limiting supply and driving
prices up for consumers. As the recent
profitability of consumer credit card
businesses suggests that these markets
are imperfectly competitive, the Bureau
expects less than full offset, with
consumers gaining in total from reduced
late fees.165 The same observation
165 In its latest annual report on credit card
profitability to Congress, the Board found that
‘‘[c]redit card earnings have almost always been
higher than returns on all bank activities, and
earnings patterns for 2021 were consistent with
historical experience.’’ Bd. of Governors. of the Fed.
Rsrv. Sys., Profitability of Credit Card Operations of
Depository Institutions (July 2022), at 7, https://
www.federalreserve.gov/publications/files/
ccprofit2022.pdf. The Board also found that the
quarterly average return on credit card assets (ROA)
using Y–14 data was stable at around 1.10 percent
during the 2014–19 period before the pandemic,
while the quarterly average credit card bank ROA
using Call Report data was 1.03 percent. These
measures dipped below zero early in the COVID–
19 pandemic but rebounded to around 2 percent by
2021 for the Y–14. Late and other fees ranged from
7 percent to 28 percent of ROA during the 2014–
2021 period. Robert Adams et al., Credit Card
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indicates that the market will see few
exits and no fewer entries. The two
pieces of evidence most relevant to set
the Bureau’s expectations for offset are
an academic publication and a Bureau
report that includes an analysis of the
effects of the fee changes resulting from
implementing the CARD Act.166 The
Bureau reads this evidence as
tentatively suggesting less than full
offset, if any.
To illustrate an upper bound of the
potential offsetting effect, consider the
increase in interest income required to
offset lost late fee income.167 As
discussed above, over the last 12
months, limiting late fees to $8 could
have reduced the late fee revenue of Y–
14 issuers with cost data by 72.3
percent, or $4.11 billion, even if some
issuers use the cost analysis provisions
to determine the amount of the late fee
as discussed above. Total interest
income at the issuers with collection
costs in the Y–14 data was $71.4 billion
over the same 12 months, so offsetting
the lost fee revenue would require
increasing interest revenue by $4.11
billion, or 5.8 percent. This change
would be less than 2 percentage points
on an APR that is below 34.7 percent.168
Economic theory also suggests the
potential for a pass-through of greater
than what would be required to offset
lost fee revenue, if the credit card
market is sufficiently adversely selected
on APRs.169 Intuitively, if the offsetting
change in APRs leads low-risk
consumers to leave the pool of credit
card borrowers to a greater degree than
it leads higher-risk consumers to leave
the pool of credit card borrowers, then
the resulting change in average credit
risk could lead to further increases in
APRs in market equilibrium. However,
the Bureau notes that existing evidence
Profitability, FEDS Notes, Bd. of Governors. of the
Fed. Rsrv. Sys., (Sept. 9, 2022), https://doi.org/
10.17016/2380-7172.3100.
166 Sumit Agarwal et al., Regulating Consumer
Financial Products: Evidence from Credit Cards,
130 Quarterly J. of Econ., at 111–164 (February
2015), https://doi.org/10.1093/qje/qju037; 2013
Report, at 20–37.
167 The available evidence suggests that issuers
compete fiercely with more salient (though not
necessarily transparent) rewards and, to a lesser
extent, annual or account maintenance fees. (Other
types of penalty fees, such as over-the-limit or
returned check fees, are subject to existing CARD
Act limits, and in any case apply only in particular
circumstances and generate relatively little
revenue.) This leads the Bureau to estimate an
interest-only response as the full-offset benchmark.
See, for instance, the academic research cited in
footnote 45, or Figure 44 of the 2013 Report, at 82.
168 For data related to total interest income in the
Y–14 collection, see Revenue-Cost Report, at 6–9.
169 Neale Mahoney & E. Glen Weyl, Imperfect
Competition in Selection Markets, 99 Review of
Economics and Statistics, MIT Press at 637–51(Oct.
1, 2017), https://doi.org/10.1162/REST_a_00661.
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on adverse selection in the credit card
market suggests that adverse selection is
unlikely to be this severe. Most notably,
a research paper studying the effects of
the safe-harbor fee levels in the Board’s
2010 Final Rule finds that this high
pass-through scenario can be rejected
with high statistical confidence.170
Complementary academic research finds
less than full pass-through of other
shocks to credit card lenders’ costs,171
and that the effects of adverse selection
after the Board’s 2010 Final Rule took
effect were generally modest.172 Overall,
the Bureau concludes that concerns
about adverse selection are unlikely to
alter the above analysis’s upper bound
of less than 2 percentage points change
in APRs below 34.7 percent.
This upper bound on a full interest
offset, at least on one that reprices all
accounts by the same percentage points
to recover all lost late fee revenue with
higher finance charges, suggests that any
losses to credit access would be limited.
However, the Bureau acknowledges that
late fee revenue has been concentrated
on certain market segments, suggesting
that any price responses are also likely
to be focused in those segments. In
particular, interest rates or other charges
of subprime credit cards might increase
more than for other cards, and some
consumers might find these cards too
expensive due to higher interest rate
offers. Even if this were to happen, it
would not result from a higher average
consumer cost of using credit cards but
from greater transparency about the
cards’ actual expected cost of
ownership.173 Lost credit to consumers
consciously declining offers because of
the card’s actual price becoming more
salient would constitute no harm to
them.
On the other hand, it is also possible
that some consumers’ access to credit
could fall if issuers could adequately
offset lost fee revenue expected from
them only by increasing APRs to a point
at which a particular card is not viable,
for example, because the APR exceeds
applicable legal limits. The Bureau
seeks data and other information to help
assess the likelihood of offsetting price
170 Agarwal
et al., supra note 166.
Gross et al., The Economic Consequences
of Bankruptcy Reform, 111 (7) American Economic
Review, 2309–41 (July 2021), https://
www.aeaweb.org/articles?id=10.1257/aer.20191311.
172 Scott Thomas Nelson, Essays on Household
Finance and Credit Market Regulation, Ph.D.
Thesis, Massachusetts Institute of Technology,
Department of Economics (2018), https://dspace.
mit.edu/handle/1721.1/118066.
173 As discussed below, however, the cost of
ownership of cards could go up for some consumers
and down for others, depending on their usage
patterns.
changes and any related changes in
credit access.
Any offsetting changes, like the
decrease in late fees, would affect
different consumers differently
depending, for example, on how often
they pay late and whether they carry a
balance. Cardholders who never pay late
will not benefit from the reduction in
late fees and could pay more for their
account if maintenance fees in their
market segment rise in response—or if
interest rates increase in response and
these on-time cardholders also carry a
balance. Frequent late payers are likely
to benefit monetarily from reduced late
fees, even if higher interest rates or
maintenance fees offset some of the
benefits. Cardholders who do not
regularly carry a balance but
occasionally miss a payment would
benefit from the proposed changes so
long as any increase in the cost of
finance charges (including the result of
late payments that eliminate their grace
period) is smaller than the drop in
fees.174 Cardholders who carry a balance
but rarely miss a payment are less likely
to benefit on net.
Though the late fee changes most
directly benefit those who make late
payments, the Bureau notes that late
fees are collected only from those
delinquent cardholders who eventually
pay at least the fee amount. Some
collection costs and charge-off losses are
caused by delinquent customers who do
not recover before account closure and
charge-off. These cardholders would not
receive any of the benefits of the lower
fees they are nominally assessed but do
not pay in practice.175 Using a
subsample of Y–14 account data, the
Bureau estimated that around 14
percent of late fees are assessed to
accounts that never make another
payment.
The Bureau understands that many
American households use more than
one credit card. Some of the crosssubsidies from card to card could
remain within the household, and thus
the range of household-wise gains and
losses will be less than the gains and
losses on separate credit card accounts:
Some consumers will save in late fees
on one of their cards but might
experience offsetting terms on another
171 Tal
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174 If a consumer pays late and loses the grace
period, the consumer will pay interest on the
balances. The analysis here focuses on whether the
increased interest as a result of the increase in the
rate to offset the reduction in late fee revenue is
greater than the reduction in the late fee.
175 This holds as long as the additional chargedoff balance due to higher late fees does not change
the amount the holder of the debt can eventually
collect after charge off, including through litigation
or wage garnishment. Even defaulting consumers
would benefit otherwise.
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where they are not late. The Bureau has
not quantified the magnitude of this
effect as late fees are not observed in
available household-level data, and
available account-level data do not link
cards of the same holder or their
household.
As mentioned above in part II.E,
consumers may not fully consider late
fees when shopping for a credit card. To
the extent this is true, the actual cost of
using a credit card will be greater than
consumers’ expected cost and reducing
late fees will reduce the difference
between the two. Whether or not
changes to other prices offset a
reduction in late fee revenue, consumers
may benefit if, when choosing a credit
card, they have a more accurate view of
the expected total costs of using the
card. To the extent that some consumers
become better informed about the terms
of credit cards, issuers may respond by
offering improved terms, which could
benefit even consumers who do not
shop around. In addition, consumers
might benefit or incur costs from further
repricing and restructuring other
financial products cross-marketed by
credit card issuers and their holding
companies. The Bureau is not aware of
data that could help quantify such
effects.
Recent results in psychology and
economics highlight some patterns
likely to affect consumer welfare in the
credit card market, depending on how
accurately cardholders forecast the
likelihood that they will incur late fees.
A seminal theoretical study 176
identified and coined the term for
naı¨vete´-based discrimination, in which
firms recognize that some potential
consumers are prone to systematic
mistakes. If this is indeed a feature of
credit card markets, ‘‘naı¨ve’’ and
‘‘sophisticated’’ consumers, using the
terminology of this scholarship, could
be affected by the proposed regulation
differently,. Naı¨ve consumers may
mistakenly expect high fees to be
unimportant to them, as they are overly
optimistic about not missing a payment.
Such consumers would benefit from the
proposed changes to late fee amounts,
which lower the cost of this mistake.
Sophisticated consumers, inasmuch
they would have been cross-subsidized
by naı¨ve customers’ costly mistakes,
may pay higher maintenance fees or
interest or collect fewer rewards if the
issuer offsets the revenue lost to naı¨ve
consumers. The Bureau considers that
to the extent there are offsetting changes
Heidhues & Botond Ko¨szegi, Naı¨vete´Based Discrimination, 132 (2) The Quarterly Journal
of Economics, at 1019–1054 (May 2017), https://
doi.org/10.1093/qje/qjw042.
176 Paul
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to card terms, some of these changes are
likely but has not quantified their
magnitude.
The Bureau acknowledges the
possibility that consumers who were
more likely to pay attention to late fees
than to other consequences of paying
late, like interest charges, penalty rates,
credit reporting, and the loss of a grace
period, might be harmed in the short
run if a reduction in late fees makes it
more likely that they mistakenly miss
payments. The Bureau has not
quantified this effect but notes that
reducing late fees may increase issuer
incentives to find other approaches to
make the consequences of late payment
salient to consumers, including
reminders or warnings.
Other results in psychology and
economics might suggest that the
proposal might pose some harm to
consumers for whom high late fees serve
as a valuable commitment device
without which they would have a
harder time responsibly managing their
credit card debt.177 To the extent that
late fees benefit some consumers in this
way, any harm to such consumers may
be mitigated to the extent that the
proposal creates additional incentives
for issuers to emphasize reminders,
automatic payment, and other
mechanisms that maintain similar or
better payment behavior, as discussed
below.
The proposal may benefit consumers
indirectly by making late payments less
profitable to issuers and thereby
increasing issuer incentives to take steps
that will encourage on-time payment.
Consumers may benefit from issuer
practices such as more effective
reminders or convenient payment
options. If issuers bear no net cost from
late payments, or even profit from them,
then they have no incentive to take even
inexpensive steps to reduce the
incidence of late payments. Even with
the proposed changes, issuers will not
have incentives to take all steps they
could that would efficiently reduce the
incidence of late payment since the late
fees they do charge mean they do not
bear the full cost of late payments.
Nonetheless, by limiting issuer revenue
from violations that exceeds cost, this
proposal changes issuer incentives in a
way that benefits consumers.
177 For a discussion of commitment devices most
relevant to this context, see section 10.2 of John
Beshears et al., Behavioral household finance,
Handbook of Behavioral Economics: Applications
and Foundations, at 177–276 (2018), https://
doi.org/10.1016/bs.hesbe.2018.07.004.
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Potential Benefits and Costs to Covered
Persons of the Proposed Late Fee Safe
Harbor Changes
Because the proposal would
significantly reduce the aggregate value
of late fees paid by consumers, the
proposal would significantly reduce late
fee revenue for issuers. As discussed
below, issuers can mitigate these costs
of the proposal to some extent by taking
other measures (e.g., increasing interest
rates or changing rewards), and the
reduction in late fees could affect
consumer choices or market
competition in ways that may create
benefits or costs to issuers.
As discussed above concerning
benefits to consumers, the direct effects
of reducing late fees generally to the safe
harbor amount of $8 could be, based on
recent Y–14 data, to reduce issuer late
fee revenue by 72.3 percent.
Issuer costs and revenue would also
be affected by changes in consumer
behavior in response to the reduced late
fee amounts. In particular, lower late
fees could make consumers more likely
to make late payments. As discussed
above in the section-by-section analysis
of § 1026.52(b)(1)(ii) in part V, the
Bureau expects that a $8 late fee would
still have a deterrent effect on late
payments, although that effect may be
lessened by the proposed change to
some extent, and other factors may be
more relevant (or may become more
relevant) to creating deterrence. The
Bureau also expects that any additional
late payments due to the reduced late
fee safe harbor amount would generate
both additional fee income and
additional collection costs relative to an
outcome with lower fee amounts but no
additional incidents. Even if more
consumers pay late because of the
decreased late fee amount, the cost of
collecting any such additional late
payments is unlikely to be greater, per
incident, than the cost of collecting late
payments under the existing safe harbor.
Therefore, the Bureau expects that
collection costs to card issuers would
not increase by more than fee income
derived from any additional late
payments.
Besides any impact on collection
costs, additional missed payments could
result in additional delinquencies and
ultimately increase credit losses. The
Bureau is not aware of evidence
showing that higher late fees will
prevent consumers from eventually
defaulting on their accounts.178
178 For some consumers, a high late fee may
contribute to default by increasing their overall debt
burden and making it more difficult to recover from
delinquency. For example, the 2022 paper by
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However, the Bureau notes that issuers
can take other steps to help reduce the
likelihood of consumers missing
payments, which would mitigate
potential costs of the proposal from
increased delinquencies. For example,
issuers could increase investments in
payment reminders or automatic
payments or provide lower-friction
methods of payment or rewards for
paying on time.179 Issuers could also
increase minimum payment amounts or
adjust credit limits to reduce credit risk
associated with consumers who make
late payments.
As discussed above, issuers could also
increase other prices in a way that
would offset revenue lost from reduced
late fees. In general, issuers will set the
terms of credit cards to maximize
profits, and it is not clear that limiting
late fees will directly affect the profitmaximizing finance charge or account
maintenance fee, for example. However,
a reduction in late fee revenue could
cause issuers to change other terms if
the lost late fee revenue reduced the
profitability of issuing credit cards to
the point at which issuers are faced with
a choice between raising new revenue
by changing other card terms or exiting
the market. As discussed above, such
offsetting price increases are most likely
where markets are most competitive
since any reduction in revenue is likely
to drive some firms out of the market,
limiting supply and driving prices up
for consumers. As the recent
profitability of consumer credit card
businesses suggests that these markets
are imperfectly competitive, the Bureau
expects the market to see few exits and
no change in entries.180
Grodzicki et al., described above in the section-bysection analysis of § 1026.52(b)(1)(ii) in part V, with
all the caveats noted there, found that a decrease
in late fees increases borrowing for prime borrowers
but triggers repayment for subprime cardholders.
This paper explained that this latter effect on
subprime cardholders might result from the lower
late fee amount lessening the need for subprime
cardholders to focus on avoiding late fees and
instead allowing some subprime cardholders to
start to pay more attention to the high cost of their
revolving debt.
179 A joint comment submitted by several
industry trade groups stated that issuers promote
on-time payments through a variety of means in
addition to late fees, including multiple payment
reminders sent via mail, email, or text notification
depending on consumer preference. These
commenters further stated that one issuer reported
that as of five months after rollout of its new alert
system, the issuer’s gross monthly late fees were 20
percent lower and the late fee incidence rate per
balance had fallen by nearly 25 percent. Similarly,
a large credit union trade group noted that some
credit unions already have systems in place or are
currently contracting with third-party vendors to
offer their members convenient reminders for
upcoming payment due dates via text message and
email.
180 See supra note 165.
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Issuers’ revenue loss from the
proposal could be mitigated by the
ability to use the cost analysis
provisions in § 1026.52(b)(1)(i) rather
than setting late fees at the safe harbor
amount. Any issuer with costs greater
than $8 per late payment would be able
to set a higher fee using the cost analysis
provisions, although doing so would
likely involve some expense to conduct
the relevant analysis, ensure that it
complies with the existing rule’s
requirements and potential changes
from the proposed rule, and ensure that
the relevant data and analysis are
documented in a way that would permit
the issuer to demonstrate compliance to
regulators.
Potential Benefits and Costs to
Consumers and Covered Persons of
Lowering the Limitation on Late Fees to
25 Percent of the Minimum Payment
Due
The Bureau proposes to amend
§ 1026.52(b)(2)(i)(A) to limit the dollar
amount associated with a late payment
to 25 percent of the required minimum
periodic payment due immediately
before the assessment of the late fee.
Currently, late fee amounts must not
exceed 100 percent of the required
payment.
Consumers with minimum payments
smaller than four times their card’s late
fee amount would benefit from the
proposed change by saving the
difference between the regular late fee
amount and 25 percent of their
minimum payment. For issuers setting
fees at the $8 safe harbor amount, this
includes cardholders with minimum
payments below $32. For a twelvemonth period from October 2021 to
September 2022 in the Y–14 data
collection, 15.9 percent of all accountmonths had minimum payments below
$32, or 7.7 percent of account-months
for which payments were late.181
Savings for these accounts at the Y–14
issuers would have been $44 million
between September 2021 and August
2022, relative to where late fees are
limited to $8 but can be up to 100
percent of the minimum payment due.
Qualitatively, the benefits to consumers
from this proposed limitation would be
affected by the same factors described
above in connection with the consumer
benefits of the lower safe harbor
amount, with the benefits concentrated
among consumers with lower balances
181 For more information on the distribution of
minimum payments for late accounts in the Y–14
data, see Figure 3 and related discussion in the
section-by-section analysis of § 1026.52(b)(2)(i) in
part V.
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who are generally more likely to have
low minimum payment amounts.
Similarly, this provision would
decrease revenue to covered persons to
the extent that they would otherwise
charge a late fee greater than 25 percent
of the minimum payment due. As
described above, applying this
limitation to 12 months of Y–14 data
suggests lost revenue of $44 million at
the Y–14 issuers relative to the case in
which late fees are limited to $8 but can
be up to 100 percent of the minimum
payment due.
These benefits to consumers and
corresponding costs to issuers will be
higher for issuers that determine the late
fee amount using the cost analysis
provisions in § 1026.52(b)(1)(i) and
impose late fee amounts higher than the
safe harbor amount.
The calculations of reduced late fees
above assume no change to minimum
payment amounts. The Bureau expects
these benefits to consumers and costs to
issuers to decrease if issuers increase
minimum payment amounts, either in
response to the proposed rule, as a
result of market developments, or for
any other reason.
The Bureau understands that late fee
amounts would be more varied under
this proposal than without it, as this
limit on the amount of the late fee that
could be charged would apply more
often than under the current limit of 100
percent of the minimum payment. On
the other hand, to the extent issuers take
advantage of the proposed safe harbor,
very few accounts would face a late fee
other than $8 due to the 25 percent
limitation. In principle, if late fee
amounts are less predictable, consumers
could find it more challenging to plan,
increasing the likelihood of mistakes.
The Bureau does not expect such effects
to be significant, particularly given that
this limitation would affect late fee
amounts only when balances and
minimum payment amounts are low.
Potential Benefits and Costs to
Consumers and Covered Persons From
Not Applying the Annual Adjustments
to the Proposed $8 Safe Harbor Amount
for Late Fees
The Bureau proposes to not apply the
annual adjustments based on the level
of the CPI to the proposed $8 safe harbor
amount for late fees. Instead, the Bureau
would continue to monitor the market
and adjust the safe harbor amount ad
hoc to reflect changes to pre-charge-off
collection costs and other statutory
factors. The discussion below considers
the effects of this change relative to a
baseline in which the proposed safe
harbor amount is adjusted based on the
level of the CPI; however, the effects
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would be qualitatively similar at other
safe harbor amounts.
The benefits and costs of this proposal
to consumers and covered persons
depend on whether future adjustments
by the Bureau would be greater or less
than the changes that would result from
the CPI adjustments that are currently
used. As discussed in the section-bysection analysis of § 1026.52(b)(1)(ii)(D)
in part V and illustrated in Figure 2,
trends in collection costs and the CPI do
not appear to be closely related. If the
safe harbor amount were to fall or to
grow less rapidly through the Bureau’s
future ad hoc adjustments than the
current CPI adjustments, then
consumers would benefit from the
reduced real cost of late fees, and
issuers using the safe harbor amount
would see lower revenue. Conversely,
suppose the safe harbor amount was
adjusted in the future through ad hoc
adjustments by more than it would be
through the current CPI adjustments. In
that case, consumers could face costs
from the proposed change, and issuers
using the safe harbor amount would see
increased revenue.
Under the proposal, it is likely that
the safe harbor amount would be
adjusted less frequently than under the
current rule. Some consumers would
benefit from the transparency and
administrative ease of late fee amounts
changing less often. These would be the
cardholders of issuers who do not set
the late fee using the cost analysis
provisions in § 1026.52(b)(1)(i), because
those issuers would still collect more
late fee revenue under the safe harbor
than their pre-charge-off collection
costs. The Bureau also notes that even
under CPI-based adjustments, the lower
$8 safe harbor amount combined with
the requirement that adjustments are
rounded to the closest $1 means that the
safe harbor amount would likely change
less frequently than recently.
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To the extent that some issuers
experience increases in collection costs
that would have been addressed through
CPI-based adjustments, these issuers
would retain the option under the
proposal to use the cost analysis
provisions in § 1026.52(b)(1)(i) and thus
recover their higher costs with higher
late fee amounts. Their cardholders
would still benefit from this provision if
the cost increase was slower than the
rise in the CPI. If it was faster, the
consumer would have seen the same fee
rise from this issuer determining the late
fee using the cost analysis provisions in
§ 1026.52(b)(1)(i), irrespective of this
provision.
Issuers with decreasing costs would
lose out on a mechanical increase in
their revenue above cost to reflect CPI
adjustments unless the safe harbor
amount is otherwise adjusted. As shown
in Figure 2 above in part V, recent
collection cost totals from the Y–14
portfolio data suggest that some issuers
have been experiencing decreasing
nominal collection costs even in the
inflationary period of 2021–2022.
Potential Benefits and Costs to
Consumers and Covered Persons of a
Courtesy Period Which Would Prohibit
Late Fees Imposed Within 15 Calendar
Days After the Payment Due Date
In part V, the Bureau solicits
comment on whether § 1026.52(b)(2)
should be amended to provide for a
courtesy period that would prohibit late
fees imposed within 15 calendar days
after the payment due date. Such a
courtesy period could apply only to late
fees assessed if the card issuer is using
the late fee safe harbor amount or,
alternatively, could be applicable
generally (regardless of whether the card
issuer assesses late fees according to the
safe harbor amount set forth in
§ 1026.52(b)(1)(ii) or the cost analysis
provisions in § 1026.52(b)(1)(i)).
A 15-day courtesy period would most
directly benefit consumers who will pay
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late within 15 days of the original due
date. Benefits and costs to consumers
generally and to covered persons will
depend on market responses to offset
the lost revenue.
The Bureau does not have data that
directly shows how often payments are
made within 15 calendar days after the
due date. However, it has conducted its
own analysis to estimate what fraction
of missed payments is made within 15
calendar days of the original due date.
In lieu of direct evidence on how many
days after the due date late payments
are made, this work used the Y–14
account data to count what fraction of
accounts charged late fees were current
by the end of a calendar month,
separately by how far the due date was
from the end of the month. Among
accounts that paid late fees, those with
due dates early in the month are more
likely to be current at the end of the
month. The higher share of delinquent
accounts becoming current the earlier
the due date was within a month partly
reflects the increasing share of payments
the longer time passes after the due
date. The Bureau acknowledges that
other factors might differ between
accounts with due dates closer to the
end of the month rather than earlier due
dates, and those factors might confound
repayment behavior. However, the
monotonically increasing share of
current accounts in the number of days
between the due date and the month’s
end makes the Bureau reasonably
confident in this approach
approximating the survival curve of
pending payments, or the cumulative
distribution function of payment days
after due. Figure 4 plots the
aforementioned shares for due dates 4 to
27 days before the end of the calendar
month on Y–14 data from October 2021
to September 2022, where a monotonic
relationship might most closely
approximate the survival curve of late
payments being made past due.
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As shown in Figure 4, this analysis
concluded that in this recent 12-month
period for accounts with payments due
15 days before the end of the month,
about half of accounts with missed
payments had become current by the
end of the month, suggesting that about
half of accounts with late payments
become current within 15 days. The
Bureau solicits comment on more direct
estimates of the share of missed
payments subsequently made within 15
calendar days of the original due date.
Introducing a 15-day courtesy period
would likely lead to an increase in late
payments, at least an increase in those
made within 15 days of the due date.
This would benefit some consumers
directly and indirectly by permitting
additional flexibility in their budget. For
example, paying a few days later might
enable some consumers to avoid
borrowing from another source in order
to make a timely payment, or might
simply permit them to make the
payment at a time more convenient to
them. On the other hand, some
consumers might be harmed by taking
advantage of a courtesy period if they do
not fully account for other consequences
of a late payment, which typically
include increased finance charges and a
two-month loss of the grace period. An
increase in late payments could also
increase collection costs for issuers,
although those costs may be low for
accounts that become current shortly
after the due date.
Even consumers who genuinely save
some hassle, mental or pecuniary cost
by delaying payment by less than 15
calendar days might suffer harm in the
long run if this leads to confusion about
effective due dates on their accounts or
erodes habits of prudent money
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management. However, the 15-day
courtesy period would provide a
considerable net benefit to consumers
facing temporary financial distress
around their original due date.
A 15-day courtesy period would, to
some degree, replace existing informal,
ad hoc, and inconsistent waiver and
reversal policies of many issuers,
making these policies more transparent
and uniform. This would benefit
consumers who do not ask currently for
their late fees to be reversed and would
potentially cost consumers who now
enjoy occasional late payments at no
cost, as they might bear some of the lost
fee revenue offset.
Introducing a 15-day courtesy period
could affect the late fees that issuers
charge based on the cost analysis
provisions in § 1026.52(b)(1)(i). With the
courtesy period, a smaller number of
delinquencies—the more serious ones—
would need to generate enough late fee
revenue to cover pre-charge-off
collection costs. This would generally
mean issuers using cost analysis
provisions in § 1026.52(b)(1)(i) would
charge higher late fees, increasing the
relative burden on the consumers more
than 15 calendar days late on a
payment. The absolute burden on a
consumer rises only if their issuer’s
collection costs are high enough that
cost analysis provisions in
§ 1026.52(b)(1)(i) yields a late fee higher
than the safe harbor with the courtesy
period in place. At issuers with costs
low enough that the $8 safe harbor
amount covers pre-charge-off collection
costs even when collected only on
accounts more than 15 calendar days
late, consumers who pay within the
courtesy period benefit, and issuer
revenue would fall without raising the
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absolute burden on longer-term
delinquent cardholders.
As highlighted in part V, if the 15-day
courtesy period only applies to the safe
harbor, it would provide an additional
incentive for issuers to use the cost
analysis provisions in § 1026.52(b)(1)(i)
to determine the late fee amount. Issuers
with collection costs in the $4–8 range
would have the incentive to set late fees
using the cost analysis provisions in
§ 1026.52(b)(1)(i) and charge the late fee
to every late payer without regard to a
courtesy period, even if their costs are
somewhat less than the safe harbor
amount. This could limit the number of
consumers who benefit from a courtesy
period by not paying a late fee
compared to applying the courtesy
period when the cost analysis
provisions apply. However, it could also
have the effect of reducing late fees for
some consumers who do not take
advantage of the courtesy period and
whose issuers, without a courtesy
period, would have set late fees at the
safe harbor amount.
Potential Benefits and Costs to
Consumers and Covered Persons of the
Potential Alternative To Eliminate the
Safe Harbor
As discussed in part V, the Bureau
solicits comment on the alternative of
proposing to eliminate for late fees the
safe harbor provisions in
§ 1026.52(b)(1)(ii) altogether, in which
case card issuers could only impose late
fees in amounts that issuers determine
to be reasonable and proportional under
the cost analysis provisions in
§ 1026.52(b)(1)(i).
Under the alternative, each issuer
would determine its own late fee
amount based on its own pre-charge-off
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collection costs. This alternative would
likely result in lower late fees for many
issuers than would the $8 safe harbor.
As discussed in part V and above in this
section, the data available to the Bureau
suggest that many issuers have precharge-off collection costs that are lower
than the proposed $8 safe harbor
amount. These issuers’ cardholders
would see even larger direct benefits
than under the proposal, with issuers
keeping none of their remaining fee
revenue above cost.
From the Y–14 data, the Bureau
estimates that the total savings for late
fee-paying cardholders could have been
as high as $499 million in the
September 2021–August 2022 period,
comparing late fees calculated on a cost
basis to the proposal’s $8 safe harbor
amount (with some issuers in the Y–14
data using the cost analysis provisions
to determine the late fee, as discussed
above). As discussed above concerning
the proposed safe harbor amount, the
actual benefits to consumers, and
revenue loss for issuers, would depend
on several factors, including how
consumers respond to lower late fee
amounts and how issuers offset lost
revenue. As discussed above, issuers
might respond to limitations on late fees
by increasing revenue collected through
other terms such as interest rates or
account maintenance fees, and to the
extent that this alternative would lower
late fees by more than the proposed safe
harbor it could mean a correspondingly
greater increase in the interest rate or
other charges as a result of such
changes. As with the estimates
discussed above, the Y–14 data reflect
large issuers, and the Bureau does not
have equivalent data on smaller issuers’
pre-charge-off collection costs but has
no reason to think the benefits and costs
to smaller issuers or their cardholders
would be qualitatively different.
Besides the effect on fee revenue,
eliminating the safe harbor would
impose costs on issuers by eliminating
the administrative simplicity that comes
from a bright-line rule. Each issuer that
charges a late fee would incur costs to
conduct an analysis of pre-charge-off
costs and to maintain records necessary
to demonstrate that their late fees are
reasonable and proportional under the
cost analysis provisions.
Eliminating the safe harbor would
likely result in greater variation of late
fees and more uncertainty about year-toyear revisions, which could diminish
consumer understanding and
complicate shopping. However, to the
extent that cardholders do compare late
fees when they choose which credit
card accounts to open, charge, or repay,
at-cost late fee amounts would create
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some market pressure on issuers to
lower costs by increasing efficiency.
This welfare gain could be split between
consumers and covered persons.
Potential Benefits and Costs to
Consumers and Covered Persons of
Changes to the Safe Harbor Provision
With Respect to Other Penalty Fees
In part V, the Bureau solicits
comment on whether the changes that
are the same or similar to those
proposed for late fees should be applied
to other penalty fees, such as over-thelimit fees, returned-payment fees, and
declined access check fees. In
particular, the Bureau solicits comment
on whether the proposed safe harbor
provisions should apply to other
penalty fees and whether, alternatively,
if the Bureau were to eliminate the safe
harbor provisions in § 1026.52(b)(1)(ii)
for late fees, the Bureau should also
eliminate the safe harbor for other
penalty fees.
The data available to the Bureau
indicate that these other penalty fees are
significantly less common than late fees,
generating fee revenue that is less than
1 percent of aggregate late fee revenue.
This implies that the effects on both
consumers and issuers of any changes to
these fees would be much smaller in
aggregate than the effects of changes to
the late fee provisions.
Whether adjustments to the safe
harbor provision for these other penalty
fees would significantly lower the fees
depends on the costs associated with
the incidents giving rise to these fees.
The Bureau does not have data available
with which it can estimate these costs.
The Bureau requests data on the costs
associated with the violations giving
rise to these fees that could be used to
better understand what penalty fee
amounts issuers would be likely to set
based on a cost analysis.
Assuming that the penalty fee
amounts were reduced in response to a
change in the safe harbor provision, the
benefits would likely be greatest for
consumers most likely to violate these
terms of their card agreement—for
example, consumers who are facing
tight budgets and most likely to make a
charge that causes their balance to
exceed their limit or to experience a
returned payment. For issuers, the cost
of such a change would include lost fee
revenue as well as potential costs from
additional violations. Issuers could also
respond by taking other steps to
discourage additional violations, such
as further limiting the extent to which
they approve above-the-limit
transactions. Such steps would involve
additional costs but would mitigate any
costs from additional violations.
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E. Potential Specific Impacts of the
Proposed Rule on Depository
Institutions and Credit Unions With $10
Billion or Less in Total Assets, as
Described in Section 1026
As with other issuers, depository
institutions and credit unions with $10
billion or less in total assets would
generally lose fee revenue as a result of
the proposed rule. The Bureau has no
reason to believe that depository
institutions and credit unions with $10
billion or less in total assets would
experience effects qualitatively different
from those discussed above in part
VII.D. However, with respect to precharge-off collection costs, the Bureau
recognizes that most of its analysis is
based on data from the largest issuers
and may not be representative of smaller
issuers, who do not report to the Y–14
collection. Smaller issuers may have
pre-charge-off collection costs that are
higher on average than those of the
issuers represented in the Y–14 data,
which could mean that smaller issuers
are more likely to set late fees using the
cost analysis provisions in
§ 1026.52(b)(1)(i) rather than the safe
harbor amount. On the other hand, the
Bureau expects that the proposed $8
amount would have a proportionately
smaller negative impact on smaller
issuers’ late fee income due to smaller
issuers’ having lower late fee amounts.
The Bureau collects card agreements
from many more smaller issuers than
issuers for which the Bureau has
financial data. Based on a review of
those agreements from over 500 credit
card issuers, each outside the top 20 by
outstanding credit card loans and
having more than 10,000 credit card
accounts, the Bureau established that
smaller issuers charged smaller late fees
in 2020 than larger issuers, with a
modal maximum disclosed late fee for
smaller issuers of $25.182 In contrast, in
2020, the average late fee for issuers in
the Y–14+ data was $31. The Bureau
specifically solicits comment on this
analysis and the potential impact on
smaller issuers of the proposed $8 safe
harbor amount and the other provisions
of this proposed rule, including data or
evidence related to smaller issuers’ costs
of late payments.
F. Potential Specific Impacts of the
Proposed Rule on Consumer Access to
Credit and on Consumers in Rural Areas
The Bureau is concerned about the
geographic concentration of current late
fees and that areas with higher
incidence of late fees tend to also be
areas with higher numbers of consumers
182 Late
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from disadvantaged groups, as
summarized in part II.F above.
However, the Bureau has not analyzed
the incidence of late fees in rural areas
specifically. Bureau research has found
that consumers in rural areas are
somewhat less likely than other
Americans to have a credit card, and not
significantly more likely than other
Americans to have a credit card
delinquency.183 These findings suggest
that the effects of the rule on late fees
paid by rural consumers may generally
be similar to those of other Americans.
On the other hand, consumers in rural
areas have lower median household
income, and lower median credit card
balances, than consumers in non-rural
areas.184 Though high-income
Americans have more credit cards, lowincome areas have more late payments
per card. This means it is unclear
whether savings from the proposed rule
would be larger or smaller for
consumers in rural areas; however,
reductions in fee amounts that are
similar in dollar terms may be more
meaningful on average for consumers
with lower incomes, meaning that they
may be more meaningful on average for
consumers in rural areas.
As discussed above in part VII.D., the
Bureau acknowledges that late fee
revenue has been concentrated in
certain market segments, suggesting that
any price responses are also likely to be
focused in those segments. In particular,
interest rates or other terms of subprime
or regionally prevalent credit cards may
increase more than for other cards, and
it is possible that some consumers might
find these cards too expensive due to
higher interest rate offers. Even if this
were to happen, it would not result from
a higher expected consumer cost of
using credit cards but from greater
transparency about the cards’ actual
anticipated cost of ownership. Lost
credit to consumers consciously
declining offers with the actual price
fully salient would constitute no harm
to them.
VIII. Regulatory Flexibility Act
Analysis
The Regulatory Flexibility Act (RFA)
generally requires an agency to conduct
an initial regulatory flexibility analysis
(IRFA) and a final regulatory flexibility
analysis of any rule subject to noticeand-comment rulemaking requirements
unless the agency certifies that the rule
will not have a significant economic
183 Bureau of Consumer Fin. Prot., Consumer
Finances in Rural Appalachia, at 12 (Sept. 1, 2022)
(Appalachia Report), https://www.consumerfinance.
gov/data-research/research-reports/consumerfinances-in-rural-appalachia/.
184 Id. at 8, 12.
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impact on a substantial number of small
entities (SISNOSE).185 The Bureau is
also subject to specific additional
procedures under the RFA involving
convening a panel to consult with small
business representatives before
proposing a rule for which an IRFA is
required.186 As the below analysis
shows, an IRFA is not required for this
proposal because the proposal, if
adopted, would not have a SISNOSE.
Small institutions, for the purposes of
the Small Business Regulatory
Enforcement Fairness Act (SBREFA) of
1996, are defined by the Small Business
Administration. Effective December 19,
2022, depository institutions with less
than $850 million in total assets are
determined to be small for the period
used in the subsequent analysis.187
The proposed rule would affect small
entities that issue credit cards most
directly by reducing late fee revenue
from credit cards. To assess whether the
proposed rule would have a significant
economic effect on small entities, the
Bureau considers the significance of
credit card late fee revenue as a share of
the total revenue of affected small
entities. As discussed in part VII, the
Bureau does not have data with which
to precisely estimate the effect of the
proposed rule on late fee revenue. The
Bureau analyzes available information
on total late fee revenue below because
the Bureau considers total late fee
revenue to be an upper bound on
potential impacts of the proposal on
small entities.
The Bureau estimates that there are
approximately 3,780 small banks, of
which approximately 498 report
outstanding credit card debt on their
balance sheets.188 In addition, the
Bureau estimates that there are
approximately 4,586 small credit
unions, of which approximately 2,785
report credit card assets.189 Detailed
information about sources of credit card
revenue is not available for most small
185 5
U.S.C. 601 et seq.
U.S.C. 609.
187 See Small Business Administration Table of
Sizing Standards, https://www.sba.gov/document/
support--table-size-standards (Dec. 19, 2022).
188 These estimates and others for small banks are
based on data from the quarterly Federal Financial
Institutions Examination Council (FFIEC)
Consolidated Reports of Condition and Income
(FFIEC Call Reports), and refer to the fourth quarter
of 2021, unless otherwise noted. Fed. Fin. Insts.
Examination Council, Call Reports, https://
cdr.ffiec.gov/public/ManageFacsimiles.aspx (last
visited Dec. 14, 2022).
189 These estimates and others for small credit
unions are based on data from NCUA Call Reports,
and refer to the fourth quarter of 2021, unless
otherwise noted. Nat’l Credit Union Admin., Call
Report Quarterly Data, https://www.ncua.gov/
analysis/credit-union-corporate-call-report-data/
quarterly-data (last visited Dec. 14, 2022).
186 5
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banks. However, FFIEC Call Reports
include a measure of outstanding credit
card debt held as assets. Revenue for
banks is reported on the FFIEC Call
Reports as net-interest income plus noninterest income. Interest income is
partially reported by product type. For
example, all banks are required to report
‘‘all interest, fees, and similar charges
levied against or associated with all
extensions of credit to individuals for
household, family, or other personal
expenditures arising from credit cards
(in domestic offices).’’ 190 The Bureau
considers this interest and fee income
on outstanding credit card balances as a
proxy for credit card revenue.
Credit cards represent a small fraction
of both assets and revenue for small
banks. In terms of assets, only 13 small
banks reported credit card assets at 1
percent of total assets or higher. Among
the remaining small banks with asset
share below 1 percent, 29 had a credit
card revenue share above 1 percent of
total revenue. While the Bureau does
not have a precise estimate of the share
of total bank credit card revenue
generated by late fees, it expects this
share to be well below 20 percent of
total credit card revenue at most
banks.191 Thus, for the vast majority of
small banks, even a large reduction in
credit card late fee revenue would
represent well below 1 percent of bank
revenue and, therefore, would not have
a significant economic impact.
The Bureau does not have equivalent
data on credit card revenue for small
credit unions because credit unions are
not required to separately report income
from their credit card business in the
NCUA Call Reports. However, NCUA
Call Reports provide information on
credit card assets as a share of total
assets. Based on that information, 44.9
percent of small credit unions have
more than 1 percent of their assets in
credit cards.
To obtain a rough estimate of credit
card revenue shares at small credit
unions, the Bureau extrapolated using
the relationship between credit card
revenue share and credit card asset
share in bank call report data. Based on
bank data, the Bureau estimated that the
credit card revenue share averaged
between 68 percent and 102 percent of
the credit card asset share for small
190 See the Board’s Micro Data Reference Manual,
B485, https://www.federalreserve.gov/apps/mdrm/
data-dictionary (last visited Dec. 14, 2022).
191 The Bureau has estimated that more than 10
percent of industry-wide fee and interest revenue
from credit cards comes from late fees annually.
Late Fee Report, at 14. The Bureau’s analysis of card
agreements in the same report suggested that small
issuers charge smaller late fees per incident than
large ones, suggesting that reliance on late fees by
small banks may be less than the industry average.
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banks in recent years.192 The Bureau
notes that the fact that credit card asset
shares are so much higher at credit
unions than at small banks means that
extrapolation from small banks should
be treated with caution.
Applying these estimates to credit
card assets at small credit unions would
imply that credit card revenue shares
are also relatively small at small credit
unions. Only 268 small credit unions
(about 5.8 percent of small credit
unions, or about 9.6 percent of those
that issue credit cards) are estimated to
have credit card revenue above 4
percent of total revenue. For the
remaining credit unions with estimated
credit card revenue at or below 4
percent of total revenue, the estimate
that late fees generally make up well
under 20 percent of credit card revenue
means that late fees likely represent
well below 0.8 percent (20 percent of 4
percent) of revenue for these credit
unions. As with small banks, the small
share of revenue coming from credit
cards, together with the fact that late
fees make up only a fraction of credit
card revenue, implies that even a
significant drop in late fee revenue
would not have a significant economic
impact for the large majority of small
credit unions.
In response to the ANPR, one trade
group commenter asserted that smaller
creditors and community banks,
particularly those that extend credit to
consumers who are trying to build or
repair their credit, have proportionately
higher compliance costs and would face
the most risk if the safe harbor was
reduced or eliminated, limiting their
ability to continue to offer credit
products at the same terms. Several
industry trade group commenters also
asserted that because lowering the safe
harbor would have a significant impact
on small financial institutions, the
Bureau must comply with the SBREFA
by convening a SBREFA panel in any
late fee rulemaking. However, these
commenters did not provide specific
data that leads the Bureau to doubt the
conclusions from the analysis above.
While it is possible that some small
entities would experience a significant
economic impact as a result of the
proposed rule, the analysis shows that
it would not be a substantial number of
small entities.
192 The Bureau performed a linear regression of
credit card revenue share on credit card asset share
for small banks that have any credit card assets,
using cross sectional data from the fourth quarter
of years 2018–2021. The slope of a regression line
that crosses the origin is between 0.68 and 1.02,
with an out-of-sample R2 measure of goodness-offit between 0.22 and 0.55. The relationship is
steeper before the pandemic, explaining more of the
cross-sectional variance in the revenue share.
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Accordingly, the Director hereby
certifies that this proposal, if adopted,
would not have a significant economic
impact on a substantial number of small
entities. Thus, neither an IRFA nor a
small business review panel is required
for this proposal. The Bureau requests
comment on the analysis above and
requests any relevant data.
IX. Paperwork Reduction Act
The information collections contained
within TILA and Regulation Z are
approved under OMB Control Number
3170–0015. The current expiration date
for this approval is March 31, 2023. The
Bureau has determined that this
proposed rule would not impose any
new information collections or revise
any existing recordkeeping, reporting, or
disclosure requirements on covered
entities or members of the public that
would be collections of information
requiring approval by the Office of
Management and Budget under the
Paperwork Reduction Act.193
List of Subjects in 12 CFR Part 1026
Advertising, Banks, Banking,
Consumer protection, Credit, Credit
unions, Mortgages, National banks,
Reporting and recordkeeping
requirements, Savings associations,
Truth in lending.
Authority and Issuance
For the reasons set forth above, the
Bureau proposes to amend Regulation Z,
12 CFR part 1026, as set forth below:
PART 1026—TRUTH IN LENDING
(REGULATION Z)
1. The authority citation for part 1026
continues to read as follows:
■
Authority: 12 U.S.C. 2601, 2603–2605,
2607, 2609, 2617, 3353, 5511, 5512, 5532,
5581; 15 U.S.C. 1601 et seq.
Subpart G—Special Rules Applicable
to Credit Card Accounts and Open-End
Credit Offered to College Students
2. Section 1026.52 is amended by
revising paragraphs (b)(1)(ii) and
(b)(2)(i) to read as follows:
■
§ 1026.52
Limitation on fees.
*
*
*
*
*
(b) * * *
(1) * * *
(ii) Safe harbors. A card issuer may
impose a fee for a late payment on an
account if the dollar amount of the fee
does not exceed $8. Other than a fee for
a late payment, a card issuer may
impose a fee for violating the terms or
other requirements of an account if the
193 44
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18941
dollar amount of the fee does not
exceed, as applicable:
(A) $30;
(B) $41 if the card issuer previously
imposed a fee pursuant to paragraph
(b)(1)(ii)(A) of this section for a violation
of the same type that occurred during
the same billing cycle or one of the next
six billing cycles; or
(C) Three percent of the delinquent
balance on a charge card account that
requires payment of outstanding
balances in full at the end of each
billing cycle if the card issuer has not
received the required payment for two
or more consecutive billing cycles,
notwithstanding the limitation on the
amount of a late payment fee in
paragraph (b)(1)(ii) of this section.
(D) The amounts in paragraphs
(b)(1)(ii)(A) and (B) of this section will
be adjusted annually by the Bureau to
reflect changes in the Consumer Price
Index.
(2) * * *
(i) Late payment fees that exceed 25
percent of the amount of the required
minimum periodic payment or fees,
other than late payment fees, that
exceed dollar amount associated with
violation—
(A) Generally. A card issuer must not
impose a fee for a late payment on a
credit card account under an open-end
(not home-secured) consumer credit
plan that exceeds 25 percent of the
amount of the required minimum
periodic payment due immediately
prior to assessment of the late payment
fee. For fees other than a fee for a late
payment, a card issuer must not impose
a fee for violating the terms or other
requirements of a credit card account
described in this paragraph (A) that
exceeds the dollar amount associated
with the violation.
*
*
*
*
*
■ 3. In supplement I to part 1026:
■ a. Under Section 1026.7—Periodic
Statement, revise 7(b)(11) Due Date; Late
Payment Costs,
■ b. Under Section 1026.52—
Limitations on Fees, revise 52(a)(1)
General rule and 52(b) Limitations on
Penalty Fees, and
■ c. Under Section 1026.60—Credit and
Charge Card Applications and
Solicitations, revise 60(a)(2) Form of
Disclosures; Tabular Format.
The revisions read as follows:
Supplement I to Part 1026—Official
Interpretations
Section 1026.7—Periodic Statement
*
*
*
*
*
7(b)(11) Due Date; Late Payment Costs
1. Informal periods affecting late
payments. Although the terms of the account
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agreement may provide that a card issuer
may assess a late payment fee if a payment
is not received by a certain date, the card
issuer may have an informal policy or
practice that delays the assessment of the late
payment fee for payments received a brief
period of time after the date upon which a
card issuer has the contractual right to
impose the fee. A card issuer must disclose
the due date according to the legal obligation
between the parties, and need not consider
the end of an informal ‘‘courtesy period’’ as
the due date under § 1026.7(b)(11).
2. Assessment of late payment fees. Some
State or other laws require that a certain
number of days must elapse following a due
date before a late payment fee may be
imposed. In addition, a card issuer may be
restricted by the terms of the account
agreement from imposing a late payment fee
until a payment is late for a certain number
of days following a due date. For example,
assume a payment is due on March 10 and
the account agreement or State law provides
that a late payment fee cannot be assessed
before March 21. A card issuer must disclose
the due date under the terms of the legal
obligation (March 10 in this example), and
not a date different than the due date, such
as when the card issuer is restricted by the
account agreement or State or other law from
imposing a late payment fee unless a
payment is late for a certain number of days
following the due date (March 21 in this
example). Consumers’ rights under State law
to avoid the imposition of late payment fees
during a specified period following a due
date are unaffected by the disclosure
requirement. In this example, the card issuer
would disclose March 10 as the due date for
purposes of § 1026.7(b)(11), but could not,
under State law, assess a late payment fee
before March 21.
3. Fee or rate triggered by multiple events.
If a late payment fee or penalty rate is
triggered after multiple events, such as two
late payments in six months, the card issuer
may, but is not required to, disclose the late
payment and penalty rate disclosure each
month. The disclosures must be included on
any periodic statement for which a late
payment could trigger the late payment fee or
penalty rate, such as after the consumer made
one late payment in this example. For
example, if a cardholder has already made
one late payment, the disclosure must be on
each statement for the following five billing
cycles.
4. Range of late fees or penalty rates. A
card issuer that imposes a range of late
payment fees or rates on a credit card
account under an open-end (not homesecured) consumer credit plan may state the
highest fee or rate along with an indication
lower fees or rates could be imposed. For
example, a phrase indicating the late
payment fee could be ‘‘up to $8’’ complies
with this requirement.
5. Penalty rate in effect. If the highest
penalty rate has previously been triggered on
an account, the card issuer may, but is not
required to, delete the amount of the penalty
rate and the warning that the rate may be
imposed for an untimely payment, as not
applicable. Alternatively, the card issuer
may, but is not required to, modify the
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language to indicate that the penalty rate has
been increased due to previous late payments
(if applicable).
6. Same day each month. The requirement
that the due date be the same day each month
means that the due date must generally be
the same numerical date. For example, a
consumer’s due date could be the 25th of
every month. In contrast, a due date that is
the same relative date but not numerical date
each month, such as the third Tuesday of the
month, generally would not comply with this
requirement. However, a consumer’s due
date may be the last day of each month, even
though that date will not be the same
numerical date. For example, if a consumer’s
due date is the last day of each month, it will
fall on February 28th (or February 29th in a
leap year) and on August 31st.
7. Change in due date. A creditor may
adjust a consumer’s due date from time to
time provided that the new due date will be
the same numerical date each month on an
ongoing basis. For example, a creditor may
choose to honor a consumer’s request to
change from a due date that is the 20th of
each month to the 5th of each month, or may
choose to change a consumer’s due date from
time to time for operational reasons. See
comment 2(a)(4)–3 for guidance on
transitional billing cycles.
8. Billing cycles longer than one month.
The requirement that the due date be the
same day each month does not prohibit
billing cycles that are two or three months,
provided that the due date for each billing
cycle is on the same numerical date of the
month. For example, a creditor that
establishes two-month billing cycles could
send a consumer periodic statements
disclosing due dates of January 25, March 25,
and May 25.
9. Payment due date when the creditor
does not accept or receive payments by mail.
If the due date in a given month falls on a
day on which the creditor does not receive
or accept payments by mail and the creditor
is required to treat a payment received the
next business day as timely pursuant to
§ 1026.10(d), the creditor must disclose the
due date according to the legal obligation
between the parties, not the date as of which
the creditor is permitted to treat the payment
as late. For example, assume that the
consumer’s due date is the 4th of every
month, and the creditor does not accept or
receive payments by mail on Thursday, July
4. Pursuant to § 1026.10(d), the creditor may
not treat a mailed payment received on the
following business day, Friday, July 5, as late
for any purpose. The creditor must
nonetheless disclose July 4 as the due date
on the periodic statement and may not
disclose a July 5 due date.
*
*
*
*
*
Section 1026.52—Limitations on Fees
52(a) Limitations During First Year After
Account Opening
52(a)(1) General Rule
1. Application. The 25 percent limit in
§ 1026.52(a)(1) applies to fees that the card
issuer charges to the account as well as to
fees that the card issuer requires the
consumer to pay with respect to the account
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through other means (such as through a
payment from the consumer’s asset account,
including a prepaid account as defined in
§ 1026.61, to the card issuer or from another
credit account provided by the card issuer).
For example:
i. Assume that, under the terms of a credit
card account, a consumer is required to pay
$120 in fees for the issuance or availability
of credit at account opening. The consumer
is also required to pay a cash advance fee that
is equal to five percent of the cash advance
and a late payment fee of $8 if the required
minimum periodic payment is not received
by the payment due date (which is the
twenty-fifth of the month). At account
opening on January 1 of year one, the credit
limit for the account is $500. Section
1026.52(a)(1) permits the card issuer to
charge to the account the $120 in fees for the
issuance or availability of credit at account
opening. On February 1 of year one, the
consumer uses the account for a $100 cash
advance. Section 1026.52(a)(1) permits the
card issuer to charge a $5 cash-advance fee
to the account. On March 26 of year one, the
card issuer has not received the consumer’s
required minimum periodic payment.
Section 1026.52(a)(2) permits the card issuer
to charge a $8 late payment fee to the
account. On July 15 of year one, the
consumer uses the account for a $50 cash
advance. Section 1026.52(a)(1) does not
permit the card issuer to charge a $2.50 cash
advance fee to the account. Furthermore,
§ 1026.52(a)(1) prohibits the card issuer from
collecting the $2.50 cash advance fee from
the consumer by other means.
ii. Assume that, under the terms of a credit
card account, a consumer is required to pay
$125 in fees for the issuance or availability
of credit during the first year after account
opening. At account opening on January 1 of
year one, the credit limit for the account is
$500. Section 1026.52(a)(1) permits the card
issuer to charge the $125 in fees to the
account. However, § 1026.52(a)(1) prohibits
the card issuer from requiring the consumer
to make payments to the card issuer for
additional non-exempt fees with respect to
the account during the first year after account
opening. Section 1026.52(a)(1) also prohibits
the card issuer from requiring the consumer
to open a separate credit account with the
card issuer to fund the payment of additional
non-exempt fees during the first year after the
credit card account is opened.
iii. Assume that a consumer opens a
prepaid account accessed by a prepaid card
on January 1 of year one and opens a covered
separate credit feature accessible by a hybrid
prepaid-credit card as defined by § 1026.61
that is a credit card account under an openend (not home-secured) consumer credit plan
on March 1 of year one. Assume that, under
the terms of the covered separate credit
feature accessible by the hybrid prepaidcredit card, a consumer is required to pay
$50 in fees for the issuance or availability of
credit at account opening. At credit account
opening on March 1 of year one, the credit
limit for the account is $200. Section
1026.52(a)(1) permits the card issuer to
charge the $50 in fees to the credit account.
However, § 1026.52(a)(1) prohibits the card
issuer from requiring the consumer to make
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payments to the card issuer for additional
non-exempt fees with respect to the credit
account during the first year after account
opening. Section 1026.52(a)(1) also prohibits
the card issuer from requiring the consumer
to open an additional credit feature with the
card issuer to fund the payment of additional
non-exempt fees during the first year after the
covered separate credit feature is opened.
iv. Assume that a consumer opens a
prepaid account accessed by a prepaid card
on January 1 of year one and opens a covered
separate credit feature accessible by a hybrid
prepaid-credit card as defined in § 1026.61
that is a credit card account under an openend (not home-secured) consumer credit plan
on March 1 of year one. Assume that, under
the terms of the covered separate credit
feature accessible by the hybrid prepaidcredit card, a consumer is required to pay
$120 in fees for the issuance or availability
of credit at account opening. The consumer
is also required to pay a cash advance fee that
is equal to 5 percent of any cash advance and
a late payment fee of $8 if the required
minimum periodic payment is not received
by the payment due date (which is the 25th
of the month). At credit account opening on
March 1 of year one, the credit limit for the
account is $500. Section 1026.52(a)(1)
permits the card issuer to charge to the
account the $120 in fees for the issuance or
availability of credit at account opening. On
April 1 of year one, the consumer uses the
account for a $100 cash advance. Section
1026.52(a)(1) permits the card issuer to
charge a $5 cash advance fee to the account.
On April 26 of year one, the card issuer has
not received the consumer’s required
minimum periodic payment. Section
1026.52(a)(2) permits the card issuer to
charge a $8 late payment fee to the account.
On July 15 of year one, the consumer uses
the account for a $50 cash advance. Section
1026.52(a)(1) does not permit the card issuer
to charge a $2.50 cash advance fee to the
account, because the total amount of nonexempt fees reached the 25 percent limit
with the $5 cash advance fee on April 1 (the
$8 late fee on April 26 is exempt pursuant
to § 1026.52(a)(2)(i)). Furthermore,
§ 1026.52(a)(1) prohibits the card issuer from
collecting the $2.50 cash advance fee from
the consumer by other means.
2. Fees that exceed 25 percent limit. A card
issuer that charges a fee to a credit card
account that exceeds the 25 percent limit
complies with § 1026.52(a)(1) if the card
issuer waives or removes the fee and any
associated interest charges or credits the
account for an amount equal to the fee and
any associated interest charges within a
reasonable amount of time but no later than
the end of the billing cycle following the
billing cycle during which the fee was
charged. For example, assuming the facts in
the example in comment 52(a)(1)–1.i above,
the card issuer complies with § 1026.52(a)(1)
if the card issuer charged the $2.50 cash
advance fee to the account on July 15 of year
one but waived or removed the fee or
credited the account for $2.50 (plus any
interest charges on that $2.50) at the end of
the billing cycle.
3. Changes in credit limit during first year.
i. Increases in credit limit. If a card issuer
increases the credit limit during the first year
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after the account is opened, § 1026.52(a)(1)
does not permit the card issuer to require the
consumer to pay additional fees that would
otherwise be prohibited (such as a fee for
increasing the credit limit). For example,
assume that, at account opening on January
1, the credit limit for a credit card account
is $400 and the consumer is required to pay
$100 in fees for the issuance or availability
of credit. On July 1, the card issuer increases
the credit limit for the account to $600.
Section 1026.52(a)(1) does not permit the
card issuer to require the consumer to pay
additional fees based on the increased credit
limit.
ii. Decreases in credit limit. If a card issuer
decreases the credit limit during the first year
after the account is opened, § 1026.52(a)(1)
requires the card issuer to waive or remove
any fees charged to the account that exceed
25 percent of the reduced credit limit or to
credit the account for an amount equal to any
fees the consumer was required to pay with
respect to the account that exceed 25 percent
of the reduced credit limit within a
reasonable amount of time but no later than
the end of the billing cycle following the
billing cycle during which the credit limit
was reduced. For example, assume that, at
account opening on January 1, the credit
limit for a credit card account is $1,000 and
the consumer is required to pay $250 in fees
for the issuance or availability of credit. The
billing cycles for the account begin on the
first day of the month and end on the last day
of the month. On July 30, the card issuer
decreases the credit limit for the account to
$600. Section 1026.52(a)(1) requires the card
issuer to waive or remove $100 in fees from
the account or to credit the account for an
amount equal to $100 within a reasonable
amount of time but no later than August 31.
4. Date on which account may first be used
by consumer to engage in transactions.
i. Methods of compliance. For purposes of
§ 1026.52(a)(1), an account is considered
open no earlier than the date on which the
account may first be used by the consumer
to engage in transactions. A card issuer may
consider an account open for purposes of
§ 1026.52(a)(1) on any of the following dates:
A. The date the account is first used by the
consumer for a transaction (such as when an
account is established in connection with
financing the purchase of goods or services).
B. The date the consumer complies with
any reasonable activation procedures
imposed by the card issuer for preventing
fraud or unauthorized use of a new account
(such as requiring the consumer to provide
information that verifies his or her identity),
provided that the account may be used for
transactions on that date.
C. The date that is seven days after the card
issuer mails or delivers to the consumer
account-opening disclosures that comply
with § 1026.6, provided that the consumer
may use the account for transactions after
complying with any reasonable activation
procedures imposed by the card issuer for
preventing fraud or unauthorized use of the
new account (such as requiring the consumer
to provide information that verifies his or her
identity). If a card issuer has reasonable
procedures designed to ensure that accountopening disclosures that comply with
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§ 1026.6 are mailed or delivered to
consumers no later than a certain number of
days after the card issuer establishes the
account, the card issuer may add that number
of days to the seven-day period for purposes
of determining the date on which the account
was opened.
ii. Examples. A. Assume that, on July 1 of
year one, a credit card account under an
open-end (not home-secured) consumer
credit plan is established in connection with
financing the purchase of goods or services
and a $500 transaction is charged to the
account by the consumer. The card issuer
may consider the account open on July 1 of
year one for purposes of § 1026.52(a)(1).
Accordingly, § 1026.52(a)(1) ceases to apply
to the account on July 1 of year two.
B. Assume that, on July 1 of year one, a
card issuer approves a consumer’s
application for a credit card account under
an open-end (not home-secured) consumer
credit plan and establishes the account on its
internal systems. On July 5, the card issuer
mails or delivers to the consumer accountopening disclosures that comply with
§ 1026.6. If the consumer may use the
account for transactions on the date the
consumer complies with any reasonable
procedures imposed by the card issuer for
preventing fraud or unauthorized use, the
card issuer may consider the account open
on July 12 of year one for purposes of
§ 1026.52(a)(1). Accordingly, § 1026.52(a)(1)
ceases to apply to the account on July 12 of
year two.
C. Same facts as in paragraph B above
except that the card issuer has adopted
reasonable procedures designed to ensure
that account-opening disclosures that comply
with § 1026.6 are mailed or delivered to
consumers no later than three days after an
account is established on its systems. If the
consumer may use the account for
transactions on the date the consumer
complies with any reasonable procedures
imposed by the card issuer for preventing
fraud or unauthorized use, the card issuer
may consider the account open on July 11 of
year one for purposes of § 1026.52(a)(1).
Accordingly, § 1026.52(a)(1) ceases to apply
to the account on July 11 of year two.
However, if the consumer uses the account
for a transaction or complies with the card
issuer’s reasonable procedures for preventing
fraud or unauthorized use on July 8 of year
one, the card issuer may, at its option,
consider the account open on that date for
purposes of § 1026.52(a)(1) and
§ 1026.52(a)(1) therefore ceases to apply to
the account on July 8 of year two.
*
*
*
*
*
52(b) Limitations on Penalty Fees
1. Fees for violating the account terms or
other requirements. For purposes of
§ 1026.52(b), a fee includes any charge
imposed by a card issuer based on an act or
omission that violates the terms of the
account or any other requirements imposed
by the card issuer with respect to the
account, other than charges attributable to
periodic interest rates. Accordingly, for
purposes of § 1026.52(b), a fee does not
include charges attributable to an increase in
an annual percentage rate based on an act or
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omission that violates the terms or other
requirements of an account.
i. The following are examples of fees that
are subject to the limitations in § 1026.52(b)
or are prohibited by § 1026.52(b):
A. Late payment fees and any other fees
imposed by a card issuer if an account
becomes delinquent or if a payment is not
received by a particular date. A late payment
fee or late fee is any fee imposed for a late
payment. See § 1026.60(b)(9) and
accompanying commentary.
B. Returned payment fees and any other
fees imposed by a card issuer if a payment
received via check, automated clearing
house, or other payment method is returned.
C. Any fee or charge for an over-the-limit
transaction as defined in § 1026.56(a), to the
extent the imposition of such a fee or charge
is permitted by § 1026.56.
D. Any fee imposed by a card issuer if
payment on a check that accesses a credit
card account is declined.
E. Any fee or charge for a transaction that
the card issuer declines to authorize. See
§ 1026.52(b)(2)(i)(B).
F. Any fee imposed by a card issuer based
on account inactivity (including the
consumer’s failure to use the account for a
particular number or dollar amount of
transactions or a particular type of
transaction). See § 1026.52(b)(2)(i)(B).
G. Any fee imposed by a card issuer based
on the closure or termination of an account.
See § 1026.52(b)(2)(i)(B).
ii. The following are examples of fees to
which § 1026.52(b) does not apply:
A. Balance transfer fees.
B. Cash advance fees.
C. Foreign transaction fees.
D. Annual fees and other fees for the
issuance or availability of credit described in
§ 1026.60(b)(2), except to the extent that such
fees are based on account inactivity. See
§ 1026.52(b)(2)(i)(B).
E. Fees for insurance described in
§ 1026.4(b)(7) or debt cancellation or debt
suspension coverage described in
§ 1026.4(b)(10) written in connection with a
credit transaction, provided that such fees are
not imposed as a result of a violation of the
account terms or other requirements of an
account.
F. Fees for making an expedited payment
(to the extent permitted by § 1026.10(e)).
G. Fees for optional services (such as travel
insurance).
H. Fees for reissuing a lost or stolen card.
2. Rounding to nearest whole dollar. A card
issuer may round any fee that complies with
§ 1026.52(b) to the nearest whole dollar. For
example, if § 1026.52(b) permits a card issuer
to impose a late payment fee of $5.50, the
card issuer may round that amount up to the
nearest whole dollar and impose a late
payment fee of $6. However, if the late
payment fee permitted by § 1026.52(b) were
$5.49, the card issuer would not be permitted
to round that amount up to $6, although the
card issuer could round that amount down
and impose a late payment fee of $5.
3. Fees in connection with covered
separate credit features accessible by hybrid
prepaid-credit cards. With regard to a
covered separate credit feature and an asset
feature on a prepaid account that are both
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accessible by a hybrid prepaid-credit card as
defined in § 1026.61 where the credit feature
is a credit card account under an open-end
(not home-secured) consumer credit plan,
§ 1026.52(b) applies to any fee for violating
the terms or other requirements of the credit
feature, regardless of whether those fees are
imposed on the credit feature or on the asset
feature of the prepaid account. For example,
assume that a late fee will be imposed by the
card issuer if the covered separate credit
feature becomes delinquent or if a payment
is not received by a particular date. This fee
is subject to § 1026.52(b) regardless of
whether the fee is imposed on the asset
feature of the prepaid account or on the
separate credit feature.
4. Fees imposed on the asset feature of a
prepaid account that are not charges
imposed as part of the plan. Section
1026.52(b) does not apply to any fee or
charge imposed on the asset feature of the
prepaid account that is not a charge imposed
as part of the plan under § 1026.6(b)(3). See
§ 1026.6(b)(3)(iii)(D) and (E) and related
commentary regarding fees imposed on the
asset feature prepaid account that are not
charges imposed as part of the plan under
§ 1026.6(b)(3) with respect to covered
separate credit features accessible by hybrid
prepaid-credit cards and non-covered
separate credit features as those terms are
defined in § 1026.61.
5. Examples. Any dollar amount examples
in the commentary to § 1026.52(b) relating to
the safe harbors in § 1026.52(b)(1) are based
on the original historical safe-harbor
thresholds of $25 and $35 for penalty fees
other than late fees, and on the threshold of
$8 for late fees.
52(b)(1) General Rule
1. Relationship between § 1026.52(b)(1)(i),
(b)(1)(ii), and (b)(2).
i. Relationship between § 1026.52(b)(1)(i)
and (b)(1)(ii). A card issuer may impose a fee
for violating the terms or other requirements
of an account pursuant to either
§ 1026.52(b)(1)(i) or (b)(1)(ii).
A. A card issuer that complies with the
safe harbors in § 1026.52(b)(1)(ii) is not
required to determine that its fees represent
a reasonable proportion of the total costs
incurred by the card issuer as a result of a
type of violation under § 1026.52(b)(1)(i).
B. A card issuer may impose a fee for one
type of violation pursuant to
§ 1026.52(b)(1)(i) and may impose a fee for a
different type of violation pursuant to
§ 1026.52(b)(1)(ii). For example, a card issuer
may impose a late payment fee of $9 based
on a cost determination pursuant to
§ 1026.52(b)(1)(i) but impose returned
payment and over-the-limit fees of $25 or $35
pursuant to the safe harbors in
§ 1026.52(b)(1)(ii).
C. A card issuer that previously based the
amount of a penalty fee for a particular type
of violation on a cost determination pursuant
to § 1026.52(b)(1)(i) may begin to impose a
penalty fee for that type of violation that is
consistent with § 1026.52(b)(1)(ii) at any time
(subject to the notice requirements in
§ 1026.9), provided that the first fee imposed
pursuant to § 1026.52(b)(1)(ii) is consistent
with § 1026.52(b)(1)(ii)(A). For example,
assume that consistent with § 1026.56, a
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consumer has affirmatively consented to the
payment of transactions that exceed the
credit limit. A transaction occurs on January
15 that causes the account balance to exceed
the credit limit and, based on a cost
determination pursuant to § 1026.52(b)(1)(i),
the card issuer imposes a $30 over-the-limit
fee. The consumer’s next monthly payment
brings the account balance below the credit
limit. On July 15, another transaction causes
the account balance to exceed the credit
limit. The card issuer may impose another
$30 over-the-limit fee pursuant to
§ 1026.52(b)(1)(i) or may impose a $25 overthe-limit fee pursuant to
§ 1026.52(b)(1)(ii)(A). However, the card
issuer may not impose a $35 over-the-limit
fee pursuant to § 1026.52(b)(1)(ii)(B). If the
card issuer imposes a $25 fee pursuant to
§ 1026.52(b)(1)(ii)(A) for the July 15 over-thelimit transaction and on September 15
another transaction causes the account
balance to exceed the credit limit, the card
issuer may impose a $35 fee for the
September 15 over-the-limit transaction
pursuant to § 1026.52(b)(1)(ii)(B).
ii. Relationship between § 1026.52(b)(1)
and (b)(2). Section 1026.52(b)(1) does not
permit a card issuer to impose a fee that is
inconsistent with the prohibitions in
§ 1026.52(b)(2). For example, if
§ 1026.52(b)(2)(i) prohibits the card issuer
from imposing a late payment fee that
exceeds $7, § 1026.52(b)(1)(ii) does not
permit the card issuer to impose a higher late
payment fee.
52(b)(1)(i) Fees Based on Costs
1. Costs incurred as a result of violations.
Section 1026.52(b)(1)(i) does not require a
card issuer to base a fee on the costs incurred
as a result of a specific violation of the terms
or other requirements of an account. Instead,
for purposes of § 1026.52(b)(1)(i), a card
issuer must have determined that a fee for
violating the terms or other requirements of
an account represents a reasonable
proportion of the costs incurred by the card
issuer as a result of that type of violation. A
card issuer may make a single determination
for all of its credit card portfolios or may
make separate determinations for each
portfolio. The factors relevant to this
determination include:
i. The number of violations of a particular
type experienced by the card issuer during a
prior period of reasonable length (for
example, a period of twelve months).
ii. The costs incurred by the card issuer
during that period as a result of those
violations.
iii. At the card issuer’s option, the number
of fees imposed by the card issuer as a result
of those violations during that period that the
card issuer reasonably estimates it will be
unable to collect. See comment 52(b)(1)(i)–5.
iv. At the card issuer’s option, reasonable
estimates for an upcoming period of changes
in the number of violations of that type, the
resulting costs, and the number of fees that
the card issuer will be unable to collect. See
illustrative examples in comments
52(b)(1)(i)–6 through –9.
2. Amounts excluded from cost analysis.
The following amounts are not costs incurred
by a card issuer as a result of violations of
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the terms or other requirements of an account
for purposes of § 1026.52(b)(1)(i):
i. Losses and associated costs (including
the cost of holding reserves against potential
losses, the cost of funding delinquent
accounts, and any collection costs that are
incurred after an account is charged off in
accordance with loan-loss provisions).
ii. Costs associated with evaluating
whether consumers who have not violated
the terms or other requirements of an account
are likely to do so in the future (such as the
costs associated with underwriting new
accounts). However, once a violation of the
terms or other requirements of an account
has occurred, the costs associated with
preventing additional violations for a
reasonable period of time are costs incurred
by a card issuer as a result of violations of
the terms or other requirements of an account
for purposes of § 1026.52(b)(1)(i).
3. Third-party charges. As a general matter,
amounts charged to the card issuer by a third
party as a result of a violation of the terms
or other requirements of an account are costs
incurred by the card issuer for purposes of
§ 1026.52(b)(1)(i). For example, if a card
issuer is charged a specific amount by a third
party for each returned payment, that amount
is a cost incurred by the card issuer as a
result of returned payments. However, if the
amount is charged to the card issuer by an
affiliate or subsidiary of the card issuer, the
card issuer must have determined that the
charge represents a reasonable proportion of
the costs incurred by the affiliate or
subsidiary as a result of the type of violation.
For example, if an affiliate of a card issuer
provides collection services to the card issuer
on delinquent accounts, the card issuer must
have determined that the amounts charged to
the card issuer by the affiliate for such
services represent a reasonable proportion of
the costs incurred by the affiliate as a result
of late payments.
4. Amounts charged by other card issuers.
The fact that a card issuer’s fees for violating
the terms or other requirements of an account
are comparable to fees assessed by other card
issuers does not satisfy the requirements of
§ 1026.52(b)(1)(i).
5. Uncollected fees. For purposes of
§ 1026.52(b)(1)(i), a card issuer may consider
fees that it is unable to collect when
determining the appropriate fee amount. Fees
that the card issuer is unable to collect
include fees imposed on accounts that have
been charged off by the card issuer, fees that
have been discharged in bankruptcy, and fees
that the card issuer is required to waive in
order to comply with a legal requirement
(such as a requirement imposed by 12 CFR
part 1026 or 50 U.S.C. app. 527). However,
fees that the card issuer chooses not to
impose or chooses not to collect (such as fees
the card issuer chooses to waive at the
request of the consumer or under a workout
or temporary hardship arrangement) are not
relevant for purposes of this determination.
See illustrative examples in comments
52(b)(2)(i)–6 through –9.
6. Late payment fees.
i. Costs incurred as a result of late
payments. For purposes of § 1026.52(b)(1)(i),
the costs incurred by a card issuer as a result
of late payments include the costs associated
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with the collection of late payments, such as
the costs associated with notifying
consumers of delinquencies and resolving
delinquencies (including the establishment
of workout and temporary hardship
arrangements).
ii. Examples. A. Late payment fee based on
past delinquencies and costs. Assume that,
during year one, a card issuer experienced 1
million delinquencies and incurred $26
million in costs as a result of those
delinquencies. For purposes of
§ 1026.52(b)(1)(i), a $26 late payment fee
would represent a reasonable proportion of
the total costs incurred by the card issuer as
a result of late payments during year two.
B. Adjustment based on fees card issuer is
unable to collect. Same facts as above except
that the card issuer imposed a late payment
fee for each of the 1 million delinquencies
experienced during year one but was unable
to collect 25% of those fees (in other words,
the card issuer was unable to collect 250,000
fees, leaving a total of 750,000 late payments
for which the card issuer did collect or could
have collected a fee). For purposes of
§ 1026.52(b)(2)(i), a late payment fee of $35
would represent a reasonable proportion of
the total costs incurred by the card issuer as
a result of late payments during year two.
C. Adjustment based on reasonable
estimate of future changes. Same facts as
paragraphs A and B above except the card
issuer reasonably estimates that—based on
past delinquency rates and other factors
relevant to potential delinquency rates for
year two—it will experience a 2% decrease
in delinquencies during year two (in other
words, 20,000 fewer delinquencies for a total
of 980,000). The card issuer also reasonably
estimates that it will be unable to collect the
same percentage of fees (25%) during year
two as during year one (in other words, the
card issuer will be unable to collect 245,000
fees, leaving a total of 735,000 late payments
for which the card issuer will be able to
collect a fee). The card issuer also reasonably
estimates that—based on past changes in
costs incurred as a result of delinquencies
and other factors relevant to potential costs
for year two—it will experience a 5%
increase in costs during year two (in other
words, $1.3 million in additional costs for a
total of $27.3 million). For purposes of
§ 1026.52(b)(1)(i), a $37 late payment fee
would represent a reasonable proportion of
the total costs incurred by the card issuer as
a result of late payments during year two.
7. Returned payment fees.
i. Costs incurred as a result of returned
payments. For purposes of § 1026.52(b)(1)(i),
the costs incurred by a card issuer as a result
of returned payments include:
A. Costs associated with processing
returned payments and reconciling the card
issuer’s systems and accounts to reflect
returned payments;
B. Costs associated with investigating
potential fraud with respect to returned
payments; and
C. Costs associated with notifying the
consumer of the returned payment and
arranging for a new payment.
ii. Examples. A. Returned payment fee
based on past returns and costs. Assume
that, during year one, a card issuer
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18945
experienced 150,000 returned payments and
incurred $3.1 million in costs as a result of
those returned payments. For purposes of
§ 1026.52(b)(1)(i), a $21 returned payment fee
would represent a reasonable proportion of
the total costs incurred by the card issuer as
a result of returned payments during year
two.
B. Adjustment based on fees card issuer is
unable to collect. Same facts as above except
that the card issuer imposed a returned
payment fee for each of the 150,000 returned
payments experienced during year one but
was unable to collect 15% of those fees (in
other words, the card issuer was unable to
collect 22,500 fees, leaving a total of 127,500
returned payments for which the card issuer
did collect or could have collected a fee). For
purposes of § 1026.52(b)(2)(i), a returned
payment fee of $24 would represent a
reasonable proportion of the total costs
incurred by the card issuer as a result of
returned payments during year two.
C. Adjustment based on reasonable
estimate of future changes. Same facts as
paragraphs A and B above except the card
issuer reasonably estimates that—based on
past returned payment rates and other factors
relevant to potential returned payment rates
for year two—it will experience a 2%
increase in returned payments during year
two (in other words, 3,000 additional
returned payments for a total of 153,000).
The card issuer also reasonably estimates that
it will be unable to collect 25% of returned
payment fees during year two (in other
words, the card issuer will be unable to
collect 38,250 fees, leaving a total of 114,750
returned payments for which the card issuer
will be able to collect a fee). The card issuer
also reasonably estimates that—based on past
changes in costs incurred as a result of
returned payments and other factors relevant
to potential costs for year two—it will
experience a 1% decrease in costs during
year two (in other words, a $31,000 reduction
in costs for a total of $3.069 million). For
purposes of § 1026.52(b)(1)(i), a $27 returned
payment fee would represent a reasonable
proportion of the total costs incurred by the
card issuer as a result of returned payments
during year two.
8. Over-the-limit fees.
i. Costs incurred as a result of over-thelimit transactions. For purposes of
§ 1026.52(b)(1)(i), the costs incurred by a card
issuer as a result of over-the-limit
transactions include:
A. Costs associated with determining
whether to authorize over-the-limit
transactions; and
B. Costs associated with notifying the
consumer that the credit limit has been
exceeded and arranging for payments to
reduce the balance below the credit limit.
ii. Costs not incurred as a result of overthe-limit transactions. For purposes of
§ 1026.52(b)(1)(i), costs associated with
obtaining the affirmative consent of
consumers to the card issuer’s payment of
transactions that exceed the credit limit
consistent with § 1026.56 are not costs
incurred by a card issuer as a result of overthe-limit transactions.
iii. Examples. A. Over-the-limit fee based
on past fees and costs. Assume that, during
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year one, a card issuer authorized 600,000
over-the-limit transactions and incurred $4.5
million in costs as a result of those over-thelimit transactions. However, because of the
affirmative consent requirements in
§ 1026.56, the card issuer was only permitted
to impose 200,000 over-the-limit fees during
year one. For purposes of § 1026.52(b)(1)(i),
a $23 over-the-limit fee would represent a
reasonable proportion of the total costs
incurred by the card issuer as a result of overthe-limit transactions during year two.
B. Adjustment based on fees card issuer is
unable to collect. Same facts as above except
that the card issuer was unable to collect
30% of the 200,000 over-the-limit fees
imposed during year one (in other words, the
card issuer was unable to collect 60,000 fees,
leaving a total of 140,000 over-the-limit
transactions for which the card issuer did
collect or could have collected a fee). For
purposes of § 1026.52(b)(2)(i), an over-thelimit fee of $32 would represent a reasonable
proportion of the total costs incurred by the
card issuer as a result of over-the-limit
transactions during year two.
C. Adjustment based on reasonable
estimate of future changes. Same facts as
paragraphs A and B above except the card
issuer reasonably estimates that—based on
past over-the-limit transaction rates, the
percentages of over-the-limit transactions
that resulted in an over-the-limit fee in the
past (consistent with § 1026.56), and factors
relevant to potential changes in those rates
and percentages for year two—it will
authorize approximately the same number of
over-the-limit transactions during year two
(600,000) and impose approximately the
same number of over-the-limit fees (200,000).
The card issuer also reasonably estimates that
it will be unable to collect the same
percentage of fees (30%) during year two as
during year one (in other words, the card
issuer was unable to collect 60,000 fees,
leaving a total of 140,000 over-the-limit
transactions for which the card issuer will be
able to collect a fee). The card issuer also
reasonably estimates that—based on past
changes in costs incurred as a result of overthe-limit transactions and other factors
relevant to potential costs for year two—it
will experience a 6% decrease in costs
during year two (in other words, a $270,000
reduction in costs for a total of $4.23
million). For purposes of § 1026.52(b)(1)(i), a
$30 over-the-limit fee would represent a
reasonable proportion of the total costs
incurred by the card issuer as a result of overthe-limit transactions during year two.
9. Declined access check fees.
i. Costs incurred as a result of declined
access checks. For purposes of
§ 1026.52(b)(1)(i), the costs incurred by a card
issuer as a result of declining payment on a
check that accesses a credit card account
include:
A. Costs associated with determining
whether to decline payment on access
checks;
B. Costs associated with processing
declined access checks and reconciling the
card issuer’s systems and accounts to reflect
declined access checks;
C. Costs associated with investigating
potential fraud with respect to declined
access checks; and
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D. Costs associated with notifying the
consumer and the merchant or other party
that accepted the access check that payment
on the check has been declined.
ii. Example. Assume that, during year one,
a card issuer declined 100,000 access checks
and incurred $2 million in costs as a result
of those declined checks. The card issuer
imposed a fee for each declined access check
but was unable to collect 10% of those fees
(in other words, the card issuer was unable
to collect 10,000 fees, leaving a total of
90,000 declined access checks for which the
card issuer did collect or could have
collected a fee). For purposes of
§ 1026.52(b)(1)(i), a $22 declined access
check fee would represent a reasonable
proportion of the total costs incurred by the
card issuer as a result of declined access
checks during year two.
52(b)(1)(ii) Safe Harbors
1. Multiple violations of same type.
i. Same billing cycle or next six billing
cycles. A card issuer cannot impose a late fee
in excess of $8 pursuant to § 1026.52(b)(1)(ii),
regardless of whether the card issuer has
imposed a late fee within the six previous
billing cycles. For all other penalty fees, a
card issuer cannot impose a fee for a
violation pursuant to § 1026.52(b)(1)(ii)(B)
unless a fee has previously been imposed for
the same type of violation pursuant to
§ 1026.52(b)(1)(ii)(A). Once a fee has been
imposed for a violation pursuant to
§ 1026.52(b)(1)(ii)(A), the card issuer may
impose a fee pursuant to § 1026.52(b)(1)(ii)(B)
for any subsequent violation of the same type
until that type of violation has not occurred
for a period of six consecutive complete
billing cycles. A fee has been imposed for
purposes of § 1026.52(b)(1)(ii) even if the
card issuer waives or rebates all or part of the
fee.
A. Late payments. For purposes of
§ 1026.52(b)(1)(ii), a late payment occurs
during the billing cycle in which the
payment may first be treated as late
consistent with the requirements of this part
and the terms or other requirements of the
account.
B. Returned payments. For purposes of
§ 1026.52(b)(1)(ii), a returned payment occurs
during the billing cycle in which the
payment is returned to the card issuer.
C. Transactions that exceed the credit
limit. For purposes of § 1026.52(b)(1)(ii), a
transaction that exceeds the credit limit for
an account occurs during the billing cycle in
which the transaction occurs or is authorized
by the card issuer.
D. Declined access checks. For purposes of
§ 1026.52(b)(1)(ii), a check that accesses a
credit card account is declined during the
billing cycle in which the card issuer
declines payment on the check.
ii. Relationship to §§ 1026.52(b)(2)(ii) and
1026.56(j)(1). If multiple violations are based
on the same event or transaction such that
§ 1026.52(b)(2)(ii) prohibits the card issuer
from imposing more than one fee, the event
or transaction constitutes a single violation
for purposes of § 1026.52(b)(1)(ii).
Furthermore, consistent with
§ 1026.56(j)(1)(i), no more than one violation
for exceeding an account’s credit limit can
occur during a single billing cycle for
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purposes of § 1026.52(b)(1)(ii). However,
§ 1026.52(b)(2)(ii) does not prohibit a card
issuer from imposing fees for exceeding the
credit limit in consecutive billing cycles
based on the same over-the-limit transaction
to the extent permitted by § 1026.56(j)(1). In
these circumstances, the second and third
over-the-limit fees permitted by
§ 1026.56(j)(1) may be imposed pursuant to
§ 1026.52(b)(1)(ii)(B). See comment
52(b)(2)(ii)–1.
iii. Examples. The following examples
illustrate the application of
§ 1026.52(b)(1)(ii), (b)(1)(ii)(A), and
(b)(1)(ii)(B) with respect to credit card
accounts under an open-end (not homesecured) consumer credit plan that are not
charge card accounts. For purposes of these
examples, assume that the billing cycles for
the account begin on the first day of the
month and end on the last day of the month
and that the payment due date for the
account is the twenty-fifth day of the month.
A. Violations of same type (over the credit
limit). Consistent with § 1026.56, the
consumer has affirmatively consented to the
payment of transactions that exceed the
credit limit. On March 20, a transaction
causes the account balance to increase to
$1,150, which exceeds the account’s $1,000
credit limit. Consistent with
§ 1026.52(b)(1)(ii)(A), the card issuer imposes
a $25 over-the-limit fee for the March billing
cycle. The card issuer receives a $300
payment on March 25, bringing the account
below the credit limit. In order for the card
issuer to impose a $35 over-the-limit fee
pursuant to § 1026.52(b)(1)(ii)(B), a second
over-the-limit transaction must occur during
the April, May, June, July, August, or
September billing cycles.
1. Same facts as above. On April 20, a
transaction causes the account balance to
increase to $1,200, which exceeds the
account’s $1,000 credit limit. Consistent with
§ 1026.52(b)(1)(ii)(B), the card issuer may
impose a $35 over-the-limit fee for the April
billing cycle. Furthermore, the card issuer
may impose a $35 over-the-limit payment fee
for any over-the-limit transaction or event
that triggers an over-the-limit fee that occurs
during the May, June, July, August,
September, or October billing cycles, subject
to the limitations in § 1026.56(j)(1).
2. Same facts as in paragraph A above. The
account remains below the limit from March
25 until October 20, when a transaction
causes the account balance to exceed the
credit limit. However, because this over-thelimit transaction did not occur during the six
billing cycles following the March billing
cycle, § 1026.52(b)(1)(ii) only permits the
card issuer to impose an over-the-limit fee of
$25.
B. Violations of different types (late
payment and over the credit limit). The credit
limit for an account is $1,000. Consistent
with § 1026.56, the consumer has
affirmatively consented to the payment of
transactions that exceed the credit limit. A
required minimum periodic payment of $35
is due on August 25. On August 26, a late
payment has occurred because no payment
has been received. Accordingly, consistent
with § 1026.52(b)(1)(ii), the card issuer
imposes a $8 late payment fee on August 26.
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On August 30, the card issuer receives a $35
payment. On September 10, a transaction
causes the account balance to increase to
$1,150, which exceeds the account’s $1,000
credit limit. On September 11, a second
transaction increases the account balance to
$1,350. On September 23, the card issuer
receives the $50 required minimum periodic
payment due on September 25, which
reduces the account balance to $1,300. On
September 30, the card issuer imposes a $25
over-the-limit fee, consistent with
§ 1026.52(b)(1)(ii)(A). On October 26, a late
payment has occurred because the $60
required minimum periodic payment due on
October 25 has not been received.
Accordingly, consistent with
§ 1026.52(b)(1)(ii) the card issuer imposes a
$8 late payment fee on October 26.
C. Violations of different types (late
payment and returned payment). A required
minimum periodic payment of $40 is due on
July 25. On July 26, a late payment has
occurred because no payment has been
received. Accordingly, consistent with
§ 1026.52(b)(1)(ii), the card issuer imposes a
$8 late payment fee on July 26. On July 30,
the card issuer receives a $60 payment. A
required minimum periodic payment of $40
is due on August 25. On August 24, a $40
payment is received. On August 27, the $40
payment is returned to the card issuer for
insufficient funds. In these circumstances,
§ 1026.52(b)(2)(ii) permits the card issuer to
impose either a late payment fee or a
returned payment fee but not both, because
the late payment and the returned payment
result from the same event or transaction.
Accordingly, for purposes of
§ 1026.52(b)(1)(ii), the event or transaction
constitutes a single violation. However, if the
card issuer imposes a late payment fee,
§ 1026.52(b)(1)(ii) permits the issuer to
impose a fee of $8. If the card issuer imposes
a returned payment fee, the amount of the fee
may be no more than $25 pursuant to
§ 1026.52(b)(1)(ii)(A).
2. Adjustments based on Consumer Price
Index for penalty fees other than late fees.
For purposes of § 1026.52(b)(1)(ii)(A) and
(b)(1)(ii)(B), the Bureau shall calculate each
year price level adjusted amounts for penalty
fees other than late fees using the Consumer
Price Index in effect on June 1 of that year.
When the cumulative change in the adjusted
minimum value derived from applying the
annual Consumer Price level to the current
amounts in § 1026.52(b)(1)(ii)(A) and
(b)(1)(ii)(B) has risen by a whole dollar, those
amounts will be increased by $1.00.
Similarly, when the cumulative change in the
adjusted minimum value derived from
applying the annual Consumer Price level to
the current amounts in § 1026.52(b)(1)(ii)(A)
and (b)(1)(ii)(B) has decreased by a whole
dollar, those amounts will be decreased by
$1.00. The Bureau will publish adjustments
to the amounts in § 1026.52(b)(1)(ii)(A) and
(b)(1)(ii)(B).
i. Historical thresholds.
A. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $25 under
§ 1026.52(b)(1)(ii)(A) and $35 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2013.
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B. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $26 under
§ 1026.52(b)(1)(ii)(A) and $37 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2014.
C. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $27 under
§ 1026.52(b)(1)(ii)(A) and $38 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2015.
D. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $27 under
§ 1026.52(b)(1)(ii)(A), through December 31,
2016. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $37 under
§ 1026.52(b)(1)(ii)(B), through June 26, 2016,
and $38 under § 1026.52(b)(1)(ii)(B) from
June 27, 2016, through December 31, 2016.
E. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $27 under
§ 1026.52(b)(1)(ii)(A) and $38 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2017.
F. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $27 under
§ 1026.52(b)(1)(ii)(A) and $38 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2018.
G. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $28 under
§ 1026.52(b)(1)(ii)(A) and $39 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2019.
H. Card issuers were permitted to impose
a fee for violating the terms of an agreement
if the fee did not exceed $29 under
§ 1026.52(b)(1)(ii)(A) and $40 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2020.
I. Card issuers were permitted to impose a
fee for violating the terms of an agreement if
the fee did not exceed $29 under
§ 1026.52(b)(1)(ii)(A) and $40 under
§ 1026.52(b)(1)(ii)(B), through December 31,
2021.
3. Delinquent balance for charge card
accounts. Section 1026.52(b)(1)(ii)(C)
provides that, when a charge card issuer that
requires payment of outstanding balances in
full at the end of each billing cycle has not
received the required payment for two or
more consecutive billing cycles, the card
issuer may impose a late payment fee that
does not exceed three percent of the
delinquent balance. For purposes of
§ 1026.52(b)(1)(ii)(C), the delinquent balance
is any previously billed amount that remains
unpaid at the time the late payment fee is
imposed pursuant to § 1026.52(b)(1)(ii)(C).
Consistent with § 1026.52(b)(2)(ii), a charge
card issuer that imposes a fee pursuant to
§ 1026.52(b)(1)(ii)(C) with respect to a late
payment may not impose a fee pursuant to
§ 1026.52(b)(1)(ii)(B) with respect to the same
late payment. The following examples
illustrate the application of
§ 1026.52(b)(1)(ii)(C):
i. Assume that a charge card issuer requires
payment of outstanding balances in full at
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the end of each billing cycle and that the
billing cycles for the account begin on the
first day of the month and end on the last day
of the month. At the end of the June billing
cycle, the account has a balance of $1,000.
On July 5, the card issuer provides a periodic
statement disclosing the $1,000 balance
consistent with § 1026.7. During the July
billing cycle, the account is used for $292 in
transactions, increasing the balance to
$1,292. At the end of the July billing cycle,
no payment has been received and the card
issuer imposes a $8 late payment fee
consistent with § 1026.52(b)(1)(ii). On August
5, the card issuer provides a periodic
statement disclosing the $1,300 balance
consistent with § 1026.7. During the August
billing cycle, the account is used for $200 in
transactions, increasing the balance to
$1,500. At the end of the August billing
cycle, no payment has been received.
Consistent with § 1026.52(b)(1)(ii)(C), the
card issuer may impose a late payment fee of
$39, which is 3% of the $1,300 balance that
was due at the end of the August billing
cycle. Section 1026.52(b)(1)(ii)(C) does not
permit the card issuer to include the $200 in
transactions that occurred during the August
billing cycle.
ii. Same facts as above except that, on
August 25, a $100 payment is received.
Consistent with § 1026.52(b)(1)(ii)(C), the
card issuer may impose a late payment fee of
$36, which is 3% of the unpaid portion of
the $1,300 balance that was due at the end
of the August billing cycle ($1,200).
iii. Same facts as in paragraph i above
except that, on August 25, a $200 payment
is received. Consistent with
§ 1026.52(b)(1)(ii)(C), the card issuer may
impose a late payment fee of $33, which is
3% of the unpaid portion of the $1,300
balance that was due at the end of the August
billing cycle ($1,100). In the alternative, the
card issuer may impose a late payment fee of
$8 consistent with § 1026.52(b)(1)(ii).
However, § 1026.52(b)(2)(ii) prohibits the
card issuer from imposing both fees.
52(b)(2) Prohibited Fees
1. Relationship to § 1026.52(b)(1). A card
issuer does not comply with § 1026.52(b) if
it imposes a fee that is inconsistent with the
prohibitions in § 1026.52(b)(2). Thus, the
prohibitions in § 1026.52(b)(2) apply even if
a fee is consistent with § 1026.52(b)(1)(i) or
(b)(1)(ii). For example, even if a card issuer
has determined for purposes of
§ 1026.52(b)(1)(i) that a $27 fee represents a
reasonable proportion of the total costs
incurred by the card issuer as a result of a
particular type of violation, § 1026.52(b)(2)(i)
prohibits the card issuer from imposing that
fee if the dollar amount associated with the
violation is less than $27. Similarly, even if
§ 1026.52(b)(1)(ii) permits a card issuer to
impose a $25 fee, § 1026.52(b)(2)(i) prohibits
the card issuer from imposing that fee if the
dollar amount associated with the violation
is less than $25.
52(b)(2)(i) Late Payment Fees That Exceed 25
Percent of the Amount of the Required
Minimum Periodic Payment or Fees, Other
Than Late Payment Fees That Exceed Dollar
Amount Associated With Violation
1. Late payment fees. Section
1026.52(b)(2)(i) provides that a card issuer
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must not impose a fee for a late payment on
a credit card account under an open-end (not
home-secured) consumer credit plan that
exceeds 25 percent of the amount of the
required minimum periodic payment due
immediately prior to assessment of the late
payment fee. The required minimum
periodic payment due immediately prior to
the assessment of the late payment fee is the
amount that the consumer is required to pay
to avoid the late payment fee, including, as
applicable, any missed payments and fees
assessed from prior billing cycles. For
example:
i. Assume that a $20 required minimum
periodic payment is due on September 25.
The card issuer does not receive any payment
on or before September 25. On September 26,
the card issuer imposes a late payment fee.
For purposes of § 1026.52(b)(2)(i), the dollar
amount associated with the late payment is
twenty-five percent of the amount of the
required minimum periodic payment due on
September 25 ($5). Thus, under
§ 1026.52(b)(2)(i)(A), the amount of that fee
cannot exceed $5 (even if a higher fee would
be permitted under § 1026.52(b)(1)).
ii. Same facts as above except that, on
September 25, the card issuer receives a $10
payment. No further payments are received.
On September 26, the card issuer imposes a
late payment fee. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with the late payment is twentyfive percent of the full amount of the
required minimum periodic payment due on
September 25 ($5), rather than twenty-five
percent of the unpaid portion of that
payment ($2.50). Thus, under
§ 1026.52(b)(2)(i)(A), the amount of the late
payment fee cannot exceed $5 (even if a
higher fee would be permitted under
§ 1026.52(b)(1)).
iii. Assume that a $20 required minimum
periodic payment is due on October 28 and
the billing cycle for the account closes on
October 31. The card issuer does not receive
any payment on or before November 3. On
November 3, the card issuer determines that
the required minimum periodic payment due
on November 28 is $50. On November 5, the
card issuer imposes a late payment fee. For
purposes of § 1026.52(b)(2)(i), the dollar
amount associated with the late payment is
twenty-five percent of the amount of the
required minimum periodic payment due on
October 28 ($5), rather than the amount of
the required minimum periodic payment due
on November 28 ($50). Thus, under
§ 1026.52(b)(2)(i)(A), the amount of that fee
cannot exceed $5 (even if a higher fee would
be permitted under § 1026.52(b)(1)).
2. Returned payment fees. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with a returned payment is the
amount of the required minimum periodic
payment due immediately prior to the date
on which the payment is returned to the card
issuer. Thus, § 1026.52(b)(2)(i)(A) prohibits a
card issuer from imposing a returned
payment fee that exceeds the amount of that
required minimum periodic payment.
However, if a payment has been returned and
is submitted again for payment by the card
issuer, there is no additional dollar amount
associated with a subsequent return of that
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payment and § 1026.52(b)(2)(i)(B) prohibits
the card issuer from imposing an additional
returned payment fee. For example:
i. Assume that the billing cycles for an
account begin on the first day of the month
and end on the last day of the month and that
the payment due date is the twenty-fifth day
of the month. A minimum payment of $15 is
due on March 25. The card issuer receives a
check for $100 on March 23, which is
returned to the card issuer for insufficient
funds on March 26. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with the returned payment is the
amount of the required minimum periodic
payment due on March 25 ($15). Thus,
§ 1026.52(b)(2)(i)(A) prohibits the card issuer
from imposing a returned payment fee that
exceeds $15 (even if a higher fee would be
permitted under § 1026.52(b)(1)).
Furthermore, § 1026.52(b)(2)(ii) prohibits the
card issuer from assessing both a late
payment fee and a returned payment fee in
these circumstances. See comment
52(b)(2)(ii)–1.
ii. Same facts as above except that the card
issuer receives the $100 check on March 31
and the check is returned for insufficient
funds on April 2. The minimum payment
due on April 25 is $30. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with the returned payment is the
amount of the required minimum periodic
payment due on March 25 ($15), rather than
the amount of the required minimum
periodic payment due on April 25 ($30).
Thus, § 1026.52(b)(2)(i)(A) prohibits the card
issuer from imposing a returned payment fee
that exceeds $15 (even if a higher fee would
be permitted under § 1026.52(b)(1)).
Furthermore, § 1026.52(b)(2)(ii) prohibits the
card issuer from assessing both a late
payment fee and a returned payment fee in
these circumstances. See comment
52(b)(2)(ii)–1.
iii. Same facts as paragraph i above except
that, on March 28, the card issuer presents
the $100 check for payment a second time.
On April 1, the check is again returned for
insufficient funds. Section 1026.52(b)(2)(i)(B)
prohibits the card issuer from imposing a
returned payment fee based on the return of
the payment on April 1.
iv. Assume that the billing cycles for an
account begin on the first day of the month
and end on the last day of the month and that
the payment due date is the twenty-fifth day
of the month. A minimum payment of $15 is
due on August 25. The card issuer receives
a check for $15 on August 23, which is not
returned. The card issuer receives a check for
$50 on September 5, which is returned to the
card issuer for insufficient funds on
September 7. Section 1026.52(b)(2)(i)(B) does
not prohibit the card issuer from imposing a
returned payment fee in these circumstances.
Instead, for purposes of § 1026.52(b)(2)(i), the
dollar amount associated with the returned
payment is the amount of the required
minimum periodic payment due on August
25 ($15). Thus, § 1026.52(b)(2)(i)(A) prohibits
the card issuer from imposing a returned
payment fee that exceeds $15 (even if a
higher fee would be permitted under
§ 1026.52(b)(1)).
3. Over-the-limit fees. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
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associated with extensions of credit in excess
of the credit limit for an account is the total
amount of credit extended by the card issuer
in excess of the credit limit during the billing
cycle in which the over-the-limit fee is
imposed. Thus, § 1026.52(b)(2)(i)(A)
prohibits a card issuer from imposing an
over-the-limit fee that exceeds that amount.
Nothing in § 1026.52(b) permits a card issuer
to impose an over-the-limit fee if imposition
of the fee is inconsistent with § 1026.56. The
following examples illustrate the application
of § 1026.52(b)(2)(i)(A) to over-the-limit fees:
i. Assume that the billing cycles for a credit
card account with a credit limit of $5,000
begin on the first day of the month and end
on the last day of the month. Assume also
that, consistent with § 1026.56, the consumer
has affirmatively consented to the payment of
transactions that exceed the credit limit. On
March 1, the account has a $4,950 balance.
On March 6, a $60 transaction is charged to
the account, increasing the balance to $5,010.
On March 25, a $5 transaction is charged to
the account, increasing the balance to $5,015.
On the last day of the billing cycle (March
31), the card issuer imposes an over-the-limit
fee. For purposes of § 1026.52(b)(2)(i), the
dollar amount associated with the extensions
of credit in excess of the credit limit is the
total amount of credit extended by the card
issuer in excess of the credit limit during the
March billing cycle ($15). Thus,
§ 1026.52(b)(2)(i)(A) prohibits the card issuer
from imposing an over-the-limit fee that
exceeds $15 (even if a higher fee would be
permitted under § 1026.52(b)(1)).
ii. Same facts as above except that, on
March 26, the card issuer receives a payment
of $20, reducing the balance below the credit
limit to $4,995. Nevertheless, for purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with the extensions of credit in
excess of the credit limit is the total amount
of credit extended by the card issuer in
excess of the credit limit during the March
billing cycle ($15). Thus, consistent with
§ 1026.52(b)(2)(i)(A), the card issuer may
impose an over-the-limit fee of $15.
4. Declined access check fees. For purposes
of § 1026.52(b)(2)(i), the dollar amount
associated with declining payment on a
check that accesses a credit card account is
the amount of the check. Thus, when a check
that accesses a credit card account is
declined, § 1026.52(b)(2)(i)(A) prohibits a
card issuer from imposing a fee that exceeds
the amount of that check. For example,
assume that a check that accesses a credit
card account is used as payment for a $50
transaction, but payment on the check is
declined by the card issuer because the
transaction would have exceeded the credit
limit for the account. For purposes of
§ 1026.52(b)(2)(i), the dollar amount
associated with the declined check is the
amount of the check ($50). Thus,
§ 1026.52(b)(2)(i)(A) prohibits the card issuer
from imposing a fee that exceeds $50.
However, the amount of this fee must also
comply with § 1026.52(b)(1)(i) or (b)(1)(ii).
5. Inactivity fees. Section
1026.52(b)(2)(i)(B)(2) prohibits a card issuer
from imposing a fee with respect to a credit
card account under an open-end (not homesecured) consumer credit plan based on
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inactivity on that account (including the
consumer’s failure to use the account for a
particular number or dollar amount of
transactions or a particular type of
transaction). For example,
§ 1026.52(b)(2)(i)(B)(2) prohibits a card issuer
from imposing a $50 fee when a credit card
account under an open-end (not homesecured) consumer credit plan is not used for
at least $2,000 in purchases over the course
of a year. Similarly, § 1026.52(b)(2)(i)(B)(2)
prohibits a card issuer from imposing a $50
annual fee on all accounts of a particular type
but waiving the fee on any account that is
used for at least $2,000 in purchases over the
course of a year if the card issuer promotes
the waiver or rebate of the annual fee for
purposes of § 1026.55(e). However, if the card
issuer does not promote the waiver or rebate
of the annual fee for purposes of § 1026.55(e),
§ 1026.52(b)(2)(i)(B)(2) does not prohibit a
card issuer from considering account activity
along with other factors when deciding
whether to waive or rebate annual fees on
individual accounts (such as in response to
a consumer’s request).
6. Closed account fees. Section
1026.52(b)(2)(i)(B)(3) prohibits a card issuer
from imposing a fee based on the closure or
termination of an account. For example,
§ 1026.52(b)(2)(i)(B)(3) prohibits a card issuer
from:
i. Imposing a one-time fee to consumers
who close their accounts.
ii. Imposing a periodic fee (such as an
annual fee, a monthly maintenance fee, or a
closed account fee) after an account is closed
or terminated if that fee was not imposed
prior to closure or termination. This
prohibition applies even if the fee was
disclosed prior to closure or termination. See
also comment 55(d)–1.
iii. Increasing a periodic fee (such as an
annual fee or a monthly maintenance fee)
after an account is closed or terminated.
However, a card issuer is not prohibited from
continuing to impose a periodic fee that was
imposed before the account was closed or
terminated.
7. Declined transaction fees. Section
1026.52(b)(2)(i)(B)(1) states that card issuers
must not impose a fee when there is no dollar
amount associated with the violation, such as
for transactions that the card issuer declines
to authorize. With regard to a covered
separate credit feature and an asset feature on
a prepaid account that are both accessible by
a hybrid prepaid-credit card as defined in
§ 1026.61 where the credit feature is a credit
card account under an open-end (not homesecured) consumer credit plan,
§ 1026.52(b)(2)(i)(B)(1) prohibits a card issuer
from imposing declined transaction fees in
connection with the credit feature, regardless
of whether the declined transaction fee is
imposed on the credit feature or on the asset
feature of the prepaid account. For example,
if the prepaid card attempts to access credit
from the covered separate credit feature
accessible by the hybrid prepaid-credit card
and the transaction is declined,
§ 1026.52(b)(2)(i)(B)(1) prohibits the card
issuer from imposing a declined transaction
fee, regardless of whether the fee is imposed
on the credit feature or on the asset feature
of the prepaid account. Fees imposed for
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declining a transaction that would have only
accessed the asset feature of the prepaid
account and would not have accessed the
covered separate credit feature accessible by
the hybrid prepaid-credit are not covered by
§ 1026.52(b)(2)(i)(B)(1).
52(b)(2)(ii) Multiple Fees Based on a Single
Event or Transaction
1. Single event or transaction. Section
1026.52(b)(2)(ii) prohibits a card issuer from
imposing more than one fee for violating the
terms or other requirements of an account
based on a single event or transaction. If
§ 1026.56(j)(1) permits a card issuer to
impose fees for exceeding the credit limit in
consecutive billing cycles based on the same
over-the-limit transaction, those fees are not
based on a single event or transaction for
purposes of § 1026.52(b)(2)(ii). The following
examples illustrate the application of
§ 1026.52(b)(2)(ii). Assume for purposes of
these examples that the billing cycles for a
credit card account begin on the first day of
the month and end on the last day of the
month and that the payment due date for the
account is the twenty-fifth day of the month.
i. Assume that the required minimum
periodic payment due on March 25 is $35.
On March 26, the card issuer has not
received any payment and imposes a late
payment fee. Consistent with
§ 1026.52(b)(1)(ii) and (b)(2)(i), the card
issuer may impose an $8 late payment fee on
March 26. However, § 1026.52(b)(2)(ii)
prohibits the card issuer from imposing an
additional late payment fee if the $35
minimum payment has not been received by
a subsequent date (such as March 31).
A. On April 3, the card issuer provides a
periodic statement disclosing that a $70
required minimum periodic payment is due
on April 25. This minimum payment
includes the $35 minimum payment due on
March 25 and the $8 late payment fee
imposed on March 26. On April 20, the card
issuer receives a $35 payment. No additional
payments are received during the April
billing cycle. Section 1026.52(b)(2)(ii) does
not prohibit the card issuer from imposing a
late payment fee based on the consumer’s
failure to make the $70 required minimum
periodic payment on or before April 25.
Accordingly, consistent with
§ 1026.52(b)(1)(ii)) and (b)(2)(i), the card
issuer may impose an $8 late payment fee on
April 26.
B. On April 3, the card issuer provides a
periodic statement disclosing that a $35
required minimum periodic payment is due
on April 25. This minimum payment does
not include the $35 minimum payment due
on March 25 or the $8 late payment fee
imposed on March 26. On April 20, the card
issuer receives a $35 payment. No additional
payments are received during the April
billing cycle. Because the card issuer has
received the required minimum periodic
payment due on April 25 and because
§ 1026.52(b)(2)(ii) prohibits the card issuer
from imposing a second late payment fee
based on the consumer’s failure to make the
$35 minimum payment due on March 25, the
card issuer cannot impose a late payment fee
in these circumstances.
ii. Assume that the required minimum
periodic payment due on March 25 is $35.
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A. On March 25, the card issuer receives
a check for $50, but the check is returned for
insufficient funds on March 27. Consistent
with § 1026.52(b)(1)(ii), (b)(1)(ii)(A) and
(b)(2)(i)(A), the card issuer may impose a late
payment fee of $8 or a returned payment fee
of $25. However, § 1026.52(b)(2)(ii) prohibits
the card issuer from imposing both fees
because those fees would be based on a
single event or transaction.
B. Same facts as paragraph ii.A. above
except that that card issuer receives the $50
check on March 27 and the check is returned
for insufficient funds on March 29.
Consistent with § 1026.52(b)(1)(ii),
(b)(1)(ii)(A) and (b)(2)(i)(A), the card issuer
may impose a late payment fee of $8 or a
returned payment fee of $25. However,
§ 1026.52(b)(2)(ii) prohibits the card issuer
from imposing both fees because those fees
would be based on a single event or
transaction. If no payment is received on or
before the next payment due date (April 25),
§ 1026.52(b)(2)(ii) does not prohibit the card
issuer from imposing a late payment fee.
iii. Assume that the required minimum
periodic payment due on July 25 is $30. On
July 10, the card issuer receives a $50
payment, which is not returned. On July 20,
the card issuer receives a $100 payment,
which is returned for insufficient funds on
July 24. Consistent with § 1026.52(b)(1)(ii)(A)
and (b)(2)(i)(A), the card issuer may impose
a returned payment fee of $25. Nothing in
§ 1026.52(b)(2)(ii) prohibits the imposition of
this fee.
iv. Assume that the credit limit for an
account is $1,000 and that, consistent with
§ 1026.56, the consumer has affirmatively
consented to the payment of transactions that
exceed the credit limit. On March 31, the
balance on the account is $970 and the card
issuer has not received the $35 required
minimum periodic payment due on March
25. On that same date (March 31), a $70
transaction is charged to the account, which
increases the balance to $1,040. Consistent
with § 1026.52(b)(1)(ii), (b)(1)(ii)(A) and
(b)(2)(i)(A), the card issuer may impose a late
payment fee of $8 and an over-the-limit fee
of $25. Section 1026.52(b)(2)(ii) does not
prohibit the imposition of both fees because
those fees are based on different events or
transactions. No additional transactions are
charged to the account during the March,
April, or May billing cycles. If the account
balance remains more than $35 above the
credit limit on April 26, the card issuer may
impose an over-the-limit fee of $35 pursuant
to § 1026.52(b)(1)(ii)(B), to the extent
consistent with § 1026.56(j)(1). Furthermore,
if the account balance remains more than $35
above the credit limit on May 26, the card
issuer may again impose an over-the-limit fee
of $35 pursuant to § 1026.52(b)(1)(ii)(B), to
the extent consistent with § 1026.56(j)(1).
Thereafter, § 1026.56(j)(1) does not permit the
card issuer to impose additional over-thelimit fees unless another over-the-limit
transaction occurs. However, if an over-thelimit transaction occurs during the six billing
cycles following the May billing cycle, the
card issuer may impose an over-the-limit fee
of $35 pursuant to § 1026.52(b)(1)(ii)(B).
v. Assume that the credit limit for an
account is $5,000 and that, consistent with
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§ 1026.56, the consumer has affirmatively
consented to the payment of transactions that
exceed the credit limit. On July 23, the
balance on the account is $4,950. On July 24,
the card issuer receives the $100 required
minimum periodic payment due on July 25,
reducing the balance to $4,850. On July 26,
a $75 transaction is charged to the account,
which increases the balance to $4,925. On
July 27, the $100 payment is returned for
insufficient funds, increasing the balance to
$5,025. Consistent with § 1026.52(b)(1)(ii)(A)
and (b)(2)(i)(A), the card issuer may impose
a returned payment fee of $25 or an over-thelimit fee of $25. However, § 1026.52(b)(2)(ii)
prohibits the card issuer from imposing both
fees because those fees would be based on a
single event or transaction.
vi. Assume that the required minimum
periodic payment due on March 25 is $50.
On March 20, the card issuer receives a check
for $50, but the check is returned for
insufficient funds on March 22. Consistent
with § 1026.52(b)(1)(ii)(A) and (b)(2)(i)(A),
the card issuer may impose a returned
payment fee of $25. On March 25, the card
issuer receives a second check for $50, but
the check is returned for insufficient funds
on March 27. Consistent with
§ 1026.52(b)(1)(ii), (b)(1)(ii)(A), (b)(1)(ii)(B),
and (b)(2)(i)(A), the card issuer may impose
a late payment fee of $8 or a returned
payment fee of $35. However,
§ 1026.52(b)(2)(ii) prohibits the card issuer
from imposing both fees because those fees
would be based on a single event or
transaction.
vii. Assume that the required minimum
periodic payment due on February 25 is
$100. On February 25, the card issuer
receives a check for $100. On March 3, the
card issuer provides a periodic statement
disclosing that a $120 required minimum
periodic payment is due on March 25. On
March 4, the $100 check is returned to the
card issuer for insufficient funds. Consistent
with § 1026.52(b)(1)(ii), (b)(1)(ii)(A) and
(b)(2)(i)(A), the card issuer may impose a late
payment fee of $8 or a returned payment fee
of $25 with respect to the $100 payment.
However, § 1026.52(b)(2)(ii) prohibits the
card issuer from imposing both fees because
those fees would be based on a single event
or transaction. On March 20, the card issuer
receives a $120 check, which is not returned.
No additional payments are received during
the March billing cycle. Because the card
issuer has received the required minimum
periodic payment due on March 25 and
because § 1026.52(b)(2)(ii) prohibits the card
issuer from imposing a second fee based on
the $100 payment that was returned for
insufficient funds, the card issuer cannot
impose a late payment fee in these
circumstances.
*
*
*
*
*
Section 1026.60—Credit and Charge Card
Applications and Solicitations
*
*
*
*
*
60(a)(2) Form of Disclosures; Tabular Format
1. Location of table.
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i. General. Except for disclosures given
electronically, disclosures in § 1026.60(b)
that are required to be provided in a table
must be prominently located on or with the
application or solicitation. Disclosures are
deemed to be prominently located, for
example, if the disclosures are on the same
page as an application or solicitation reply
form. If the disclosures appear elsewhere,
they are deemed to be prominently located if
the application or solicitation reply form
contains a clear and conspicuous reference to
the location of the disclosures and indicates
that they contain rate, fee, and other cost
information, as applicable.
ii. Electronic disclosures. If the table is
provided electronically, the table must be
provided in close proximity to the
application or solicitation. Card issuers have
flexibility in satisfying this requirement.
Methods card issuers could use to satisfy the
requirement include, but are not limited to,
the following examples (whatever method is
used, a card issuer need not confirm that the
consumer has read the disclosures):
A. The disclosures could automatically
appear on the screen when the application or
reply form appears;
B. The disclosures could be located on the
same web page as the application or reply
form (whether or not they appear on the
initial screen), if the application or reply
form contains a clear and conspicuous
reference to the location of the disclosures
and indicates that the disclosures contain
rate, fee, and other cost information, as
applicable;
C. Card issuers could provide a link to the
electronic disclosures on or with the
application (or reply form) as long as
consumers cannot bypass the disclosures
before submitting the application or reply
form. The link would take the consumer to
the disclosures, but the consumer need not
be required to scroll completely through the
disclosures; or
D. The disclosures could be located on the
same web page as the application or reply
form without necessarily appearing on the
initial screen, immediately preceding the
button that the consumer will click to submit
the application or reply.
2. Multiple accounts. If a tabular format is
required to be used, card issuers offering
several types of accounts may disclose the
various terms for the accounts in a single
table or may provide a separate table for each
account.
3. Information permitted in the table. See
the commentary to § 1026.60(b), (d), and
(e)(1) for guidance on additional information
permitted in the table.
4. Deletion of inapplicable disclosures.
Generally, disclosures need only be given as
applicable. Card issuers may, therefore, omit
inapplicable headings and their
corresponding boxes in the table. For
example, if no foreign transaction fee is
imposed on the account, the heading Foreign
transaction and disclosure may be deleted
from the table, or the disclosure form may
contain the heading Foreign transaction and
a disclosure showing none. There is an
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exception for the grace period disclosure;
even if no grace period exists, that fact must
be stated.
5. Highlighting of annual percentage rates
and fee amounts.
i. In general. See Samples G–10(B) and G–
10(C) for guidance on providing the
disclosures described in § 1026.60(a)(2)(iv) in
bold text. Other annual percentage rates or
fee amounts disclosed in the table may not
be in bold text. Samples G–10(B) and G–
10(C) also provide guidance to issuers on
how to disclose the rates and fees described
in § 1026.60(a)(2)(iv) in a clear and
conspicuous manner, by including these
rates and fees generally as the first text in the
applicable rows of the table so that the
highlighted rates and fees generally are
aligned vertically in the table.
ii. Maximum limits on fees. Section
1026.60(a)(2)(iv) provides that any maximum
limits on fee amounts must be disclosed in
bold text. For example, assume that
consistent with § 1026.52(b)(1)(ii), a card
issuer’s late payment fee will not exceed $8.
The maximum limit of $8 for the late
payment fee must be highlighted in bold.
Similarly, assume an issuer will charge a
cash advance fee of $5 or 3 percent of the
cash advance transaction amount, whichever
is greater, but the fee will not exceed $100.
The maximum limit of $100 for the cash
advance fee must be highlighted in bold.
iii. Periodic fees. Section 1026.60(a)(2)(iv)
provides that any periodic fee disclosed
pursuant to § 1026.60(b)(2) that is not an
annualized amount must not be disclosed in
bold. For example, if an issuer imposes a $10
monthly maintenance fee for a card account,
the issuer must disclose in the table that
there is a $10 monthly maintenance fee, and
that the fee is $120 on an annual basis. In this
example, the $10 fee disclosure would not be
disclosed in bold, but the $120 annualized
amount must be disclosed in bold. In
addition, if an issuer must disclose any
annual fee in the table, the amount of the
annual fee must be disclosed in bold.
6. Form of disclosures. Whether
disclosures must be in electronic form
depends upon the following:
i. If a consumer accesses a credit card
application or solicitation electronically
(other than as described under ii. below),
such as online at a home computer, the card
issuer must provide the disclosures in
electronic form (such as with the application
or solicitation on its website) in order to meet
the requirement to provide disclosures in a
timely manner on or with the application or
solicitation. If the issuer instead mailed
paper disclosures to the consumer, this
requirement would not be met.
ii. In contrast, if a consumer is physically
present in the card issuer’s office, and
accesses a credit card application or
solicitation electronically, such as via a
terminal or kiosk (or if the consumer uses a
terminal or kiosk located on the premises of
an affiliate or third party that has arranged
with the card issuer to provide applications
or solicitations to consumers), the issuer may
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provide disclosures in either electronic or
paper form, provided the issuer complies
with the timing and delivery (‘‘on or with’’)
requirements of the regulation.
7. Terminology. Section 1026.60(a)(2)(i)
generally requires that the headings, content,
and format of the tabular disclosures be
substantially similar, but need not be
identical, to the applicable tables in
appendix G–10 to part 1026; but see
18951
§ 1026.5(a)(2) for terminology requirements
applicable to § 1026.60 disclosures.
*
*
*
*
*
Rohit Chopra,
Director, Consumer Financial Protection
Bureau.
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Agencies
- CONSUMER FINANCIAL PROTECTION BUREAU
[Federal Register Volume 88, Number 60 (Wednesday, March 29, 2023)]
[Proposed Rules]
[Pages 18906-18951]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-02393]
[[Page 18905]]
Vol. 88
Wednesday,
No. 60
March 29, 2023
Part V
Consumer Financial Protection Bureau
-----------------------------------------------------------------------
12 CFR Part 1026
Credit Card Penalty Fees (Regulation Z); Proposed Rule
Federal Register / Vol. 88, No. 60 / Wednesday, March 29, 2023 /
Proposed Rules
[[Page 18906]]
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CONSUMER FINANCIAL PROTECTION BUREAU
12 CFR Part 1026
[Docket No. CFPB-2023-0010]
RIN 3170-AB15
Credit Card Penalty Fees (Regulation Z)
AGENCY: Consumer Financial Protection Bureau.
ACTION: Proposed rule with request for public comment.
-----------------------------------------------------------------------
SUMMARY: The Consumer Financial Protection Bureau (Bureau) proposes to
amend Regulation Z, which implements the Truth in Lending Act (TILA),
to better ensure that the late fees charged on credit card accounts are
``reasonable and proportional'' to the late payment as required under
TILA. The proposal would adjust the safe harbor dollar amount for late
fees to $8 and eliminate a higher safe harbor dollar amount for late
fees for subsequent violations of the same type; provide that the
current provision that provides for annual inflation adjustments for
the safe harbor dollar amounts would not apply to the late fee safe
harbor amount; and provide that late fee amounts must not exceed 25
percent of the required payment.
DATES: Comments should be received on or before May 3, 2023.
ADDRESSES: You may submit comments, identified by Docket No. CFPB-2023-
0010 or RIN 3170-AB15, by any of the following methods:
Federal eRulemaking Portal: https://www.regulations.gov.
Follow the instructions for submitting comments.
Email: [email protected]. Include
Docket No. CFPB-2023-0010 or RIN 3170-AB15 in the subject line of the
message.
Mail/Hand Delivery/Courier: Comment Intake--2023 NPRM
Credit Card Late Fees, c/o Legal Division Docket Manager, Consumer
Financial Protection Bureau, 1700 G Street NW, Washington, DC 20552.
Because paper mail in the Washington, DC area and at the Bureau is
subject to delay, commenters are encouraged to submit comments
electronically.
Instructions: The Bureau encourages the early submission of
comments. All submissions should include the agency name and docket
number or Regulatory Information Number (RIN) for this rulemaking. In
general, comments received will be posted without change to https://www.regulations.gov. All comments, including attachments and other
supporting materials, will become part of the public record and subject
to public disclosure. Proprietary information or sensitive personal
information, such as account numbers or Social Security numbers, or
names of other individuals, should not be included. Comments will not
be edited to remove any identifying or contact information.
FOR FURTHER INFORMATION CONTACT: Adrien Fernandez, Counsel, Krista
Ayoub and Steve Wrone, Senior Counsels, Office of Regulations, at 202-
435-7700. If you require this document in an alternative electronic
format, please contact [email protected].
SUPPLEMENTARY INFORMATION:
I. Summary of the Proposed Rule
The Bureau proposes to amend provisions in Sec. 1026.52(b) and its
accompanying commentary as they relate to credit card late fees.\1\
Currently, under Sec. 1026.52(b)(1), a card issuer must not impose a
fee for violating the terms or other requirements of a credit card
account under an open-end consumer credit plan, such as a late payment,
exceeding the credit limit, or returned payments, unless the issuer has
determined that the dollar amount of the fee represents a reasonable
proportion of the total costs incurred by the issuer for that type of
violation as set forth in Sec. 1026.52(b)(1)(i) or complies with the
safe harbor provisions set forth in Sec. 1026.52(b)(1)(ii). Section
1026.52(b)(1)(ii) currently sets forth a safe harbor of $30 generally
for penalty fees, except that it sets forth a safe harbor of $41 for
each subsequent violation of the same type that occurs during the same
billing cycle or in one of the next six billing cycles.\2\ The Bureau
is concerned that (1) the safe harbor dollar amounts for late fees
currently set forth in Sec. 1026.52(b)(1)(ii) are not reasonable and
proportional to the omission or violation to which the fee relates; (2)
the current higher safe harbor threshold for late fees for subsequent
violations of the same type in the same billing cycle or in one of the
next six billing cycles is higher than is justified based on consumer
conduct and to deter future violations and, indeed, a late fee that is
too high could interfere with the consumers' ability to make future
payments on the account; and (3) additional restrictions on late fees
may be needed to ensure that late fees are reasonable and proportional.
Because late fees are by far the most prevalent penalty fees charged by
card issuers and the Bureau's current data primarily relates to late
fees, the Bureau's proposed changes to the restrictions in Sec.
1026.52(b) are limited to late fees at this time, although the Bureau
seeks comments on whether the proposed amendments should apply to other
penalty fees.
---------------------------------------------------------------------------
\1\ When amending commentary, the Office of the Federal Register
(OFR) requires reprinting of certain subsections being amended in
their entirety rather than providing more targeted amendatory
instructions. The sections of regulatory text and commentary
included in this document show the language of those sections if the
Bureau adopts its changes as proposed. In addition, the Bureau is
releasing an unofficial, informal redline to assist industry and
other stakeholders in reviewing the changes that it proposes to make
to the regulatory text and commentary of Regulation Z. This redline
can be found on the Bureau's website, https://files.consumerfinance.gov/f/documents/cfpb_2023-credit-card-late-fees-proposed-rule_unofficial-redline_2023-01.pdf. If any conflicts
exist between the redline and the text of Regulation Z, its
commentary, or this proposed rule, the documents published in the
Federal Register are the controlling documents.
\2\ Although the safe harbors discussed above apply to charge
card accounts, Sec. 1026.52(b)(1)(ii) provides an additional safe
harbor when a charge card account becomes seriously delinquent.
Specifically, Sec. 1026.52(b)(1)(ii)(C) provides that, when a card
issuer has not received the required payment for two or more
consecutive billing cycles on a charge card account that requires
payment of outstanding balances in full at the end of each billing
cycle, it may impose a late payment fee that does not exceed 3
percent of the delinquent balance.
---------------------------------------------------------------------------
The proposal would amend Sec. 1026.52(b) and its accompanying
commentary to help ensure that late fees are reasonable and
proportional. First, the proposal would amend Sec. 1026.52(b)(1)(ii)
to lower the safe harbor dollar amount for late fees to $8 and to no
longer apply to late fees a higher safe harbor dollar amount for
subsequent violations of the same type that occur during the same
billing cycle or in one of the next six billing cycles.\3\ Second, the
proposal would provide that the current provision in Sec.
1026.52(b)(1)(ii)(D) that provides for annual inflation adjustments for
the safe harbor dollar amounts would not apply to the safe harbor
amount for late fees. Third, the proposal would amend Sec.
1026.52(b)(2)(i)(A) to provide that late fee amounts must not exceed 25
percent of the required payment; currently, late fee amounts must not
exceed 100 percent. The proposal also would amend comments 7(b)(11)-4,
52(a)(1)-1.i and iv, and 60(a)(2)-5.ii to revise current examples of
late fee amounts to be consistent with the proposed $8 safe harbor late
fee amount discussed above. The Bureau also solicits comment on whether
card issuers should be prohibited from imposing late fees on consumers
that make the required
[[Page 18907]]
payment within 15 calendar days following the due date. In addition,
the Bureau seeks comment on whether, as a condition of using the safe
harbor for late fees, it may be appropriate to require card issuers to
offer automatic payment options (such as for the minimum payment
amount), or to provide notification of the payment due date within a
certain number of days prior to the due date, or both.
---------------------------------------------------------------------------
\3\ The proposal would not amend the safe harbor set forth in
Sec. 1026.52(b)(1)(ii)(C) applicable to charge card accounts.
---------------------------------------------------------------------------
The Bureau proposes one clarification that would apply to penalty
fees generally. Specifically, the proposal would amend comment
52(b)(1)(i)-2.i to clarify that costs for purposes of the cost analysis
provisions in Sec. 1026.52(b)(1)(i) for determining penalty fee
amounts do not include any collection costs that are incurred after an
account is charged off pursuant to loan loss provisions. In addition,
the Bureau solicits comment on several issues related to penalty fees
generally. First, the Bureau solicits comment on whether the same or
similar changes described above should be applied to other penalty
fees, such as over-the-limit fees, returned-payment fees, and declined
access check fees, or in the alternative, whether the Bureau should
finalize the proposed safe harbor for late fees and eliminate the safe
harbors for other penalty fees. Second, the Bureau solicits comment on
whether instead of revising the safe harbor provisions set forth in
Sec. 1026.52(b)(1)(ii) as they apply to late fees as discussed above,
the Bureau should instead eliminate the safe harbor provisions in Sec.
1026.52(b)(1)(ii) for late fees or should instead eliminate the safe
harbor for all penalty fees, including late fees, over-the-limit fees,
returned-payment fees, and declined access check fees. If the safe
harbor provisions were eliminated, card issuers would need to use the
cost analysis provisions set forth in Sec. 1026.52(b)(1)(i) to
determine the amount of the penalty fees (subject to the limitations in
Sec. 1026.52(b)(2)). The Bureau also solicits comment on whether, in
that event, the cost analysis provisions would need to be amended and,
if so, how.
II. Background
A. The CARD Act
The Credit Card Accountability Responsibility and Disclosure Act of
2009 (CARD Act) was signed into law on May 22, 2009.\4\ The CARD Act
primarily amended TILA \5\ and instituted new substantive and
disclosure requirements to establish fair and transparent practices for
open-end consumer credit plans. The CARD Act added TILA section 149,
which provides, among other things, that the amount of any penalty fee
with respect to a credit card account under an open-end consumer credit
plan in connection with any omission with respect to, or violation of,
the cardholder agreement, including any late payment fee or any other
penalty fee or charge, must be ``reasonable and proportional'' to such
omission or violation.\6\
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\4\ Public Law 111-24, 123 Stat. 1734 (2009).
\5\ 15 U.S.C. 1601 et seq.
\6\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(a)).
---------------------------------------------------------------------------
At the time of its passage, the CARD Act required the Board of
Governors of the Federal Reserve System (Board) to issue rules
establishing standards for assessing the reasonableness and
proportionality of such penalty fees.\7\ In issuing these rules, the
CARD Act required the Board to consider (1) the cost incurred by the
creditor from an omission or violation; (2) the deterrence of omissions
or violations by the cardholder; (3) the conduct of the cardholder; and
(4) such other factors deemed necessary or appropriate by the Board.\8\
The CARD Act authorized the Board to establish different standards for
different types of fees and charges, as appropriate.\9\ The CARD Act
also granted the Board discretion to provide an amount for any penalty
fee or charge that is presumed to be reasonable and proportional to the
omission or violation to which the fee or charge relates.\10\ As
discussed in more detail below, the authority to implement TILA,
including TILA section 149, transferred from the Board to the Bureau in
2011.
---------------------------------------------------------------------------
\7\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(b)).
\8\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(c)).
\9\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. (1665d(d)).
\10\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. (1665d(e)).
---------------------------------------------------------------------------
B. The Board's Implementing Rule
On June 29, 2010, the Board issued a final rule implementing new
TILA section 149 in its Regulation Z, 12 CFR 226.52(b) (2010 Final
Rule).\11\ The Board's Regulation Z, Sec. 226.52(b) provided that a
card issuer must not impose a fee for violating the terms or other
requirements of a credit card account, such as a late payment,
exceeding the credit limit, or returned payments, unless the issuer has
determined that the dollar amount of the fee represents a reasonable
proportion of the total costs incurred by the issuer for that type of
violation as set forth in Sec. 226.52(b)(1)(i) or complies with the
safe harbor provisions set forth in Sec. 226.52(b)(1)(ii).\12\ The
Board set the safe harbor amounts in Sec. 226.52(b)(1)(ii) at $25
generally for penalty fees, except that it set forth a safe harbor of
$35 for each subsequent violation of the same type that occurs during
the same billing cycle or in one of the next six billing cycles.\13\
Although the safe harbors discussed above applied to charge card
accounts, the Board's Regulation Z, Sec. 226.52(b)(1)(ii) also
provided an additional safe harbor when a charge card account becomes
seriously delinquent. Specifically, Sec. 226.52(b)(1)(ii)(C) provided
that, when a card issuer has not received the required payment for two
or more consecutive billing cycles on a charge card account that
requires payment of outstanding balances in full at the end of each
billing cycle, it may impose a late payment fee that does not exceed 3
percent of the delinquent balance.\14\ The Board's Regulation Z, Sec.
226.52(b)(1)(ii)(D) provided that the safe harbor dollar amounts would
be adjusted annually to the extent that changes in the Consumer Price
Index (CPI) would result in an increase or decrease of $1.\15\
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\11\ 75 FR 37526 (June 29, 2010).
\12\ 12 CFR 226.52(b)(1).
\13\ 12 CFR 226.52(b)(1)(ii)(A) and (B).
\14\ 12 CFR 226.52(b)(1)(ii)(C).
\15\ 12 CFR 226.52(b)(1)(ii)(D).
---------------------------------------------------------------------------
The Board's Regulation Z, Sec. 226.52(b)(2) also contained other
restrictions on card issuers for imposing penalty fees. Specifically,
Sec. 226.52(b)(2)(i) prohibited issuers from imposing penalty fees
that exceed the dollar amount associated with the violation.\16\ In
addition, Sec. 226.52(b)(2)(ii) prohibited issuers from imposing
multiple penalty fees based on a single event or transaction.\17\
---------------------------------------------------------------------------
\16\ 12 CFR 226.52(b)(2)(i).
\17\ 12 CFR 226.52(b)(2)(ii).
---------------------------------------------------------------------------
C. Transfer of Authority for TILA to the Bureau and the Bureau's Rule
The Board's 2010 Final Rule implementing TILA section 149 took
effect on August 22, 2010.\18\ Nearly one year later, on July 21, 2011,
the Board's rulemaking authority to implement the provisions of TILA,
including TILA section 149, transferred to the Bureau pursuant to
sections 1061 and 1100A of the Dodd-Frank Wall Street Reform and
Consumer Protection Act (Dodd-Frank Act).\19\
---------------------------------------------------------------------------
\18\ 75 FR 37526, 37526 (June 29, 2010).
\19\ Public Law 111-203, 124 Stat. 1376 (2010).
---------------------------------------------------------------------------
On December 22, 2011, the Bureau issued an interim final rule
issuing its Regulation Z, 12 CFR part 1026, to reflect its assumption
of rulemaking
[[Page 18908]]
authority over TILA.\20\ As set forth in the interim final rule, the
Bureau's Regulation Z, Sec. 1026.52(b) contained the same restrictions
on penalty fees as set forth in the Board's Regulation Z, Sec.
226.52(b).\21\
---------------------------------------------------------------------------
\20\ 76 FR 79768 (Dec. 22, 2011); see also 81 FR 25323 (Apr. 28,
2016).
\21\ 76 FR at 79822.
---------------------------------------------------------------------------
Since then, consistent with Sec. 1026.52(b)(1)(ii)(D), the Bureau
has adjusted the dollar amounts of the safe harbor threshold amounts to
reflect changes in the CPI in effect as of June 1 of that year.\22\
Section 1026.52(b)(1)(ii) currently sets forth a safe harbor of $30
generally for penalty fees, except that it sets forth a safe harbor of
$41 for each subsequent violation of the same type that occur during
the same billing cycle or in one of the next six billing cycles.\23\
---------------------------------------------------------------------------
\22\ Comment 52(b)(1)(ii)-2.
\23\ See supra note 2 for a description of an additional safe
harbor that applies to charge card accounts.
---------------------------------------------------------------------------
D. A Decade of the Late Fee Safe Harbor
In the wake of the Board's and the Bureau's implementation of TILA
section 149, late fees represent almost all penalty fee volume on
credit cards, as overlimit fees are now practically nonexistent and
fees for returned payments account for a negligible share based on Y-
14+ data collected from a group of mass market and specialized
issuers.\24\
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\24\ Bureau of Consumer Fin. Prot., Credit Card Late Fees, at 13
(Mar. 2022) (Late Fee Report), https://files.consumerfinance.gov/f/documents/cfpb_credit-card-late-fees_report_2022-03.pdf. See part
III.C for a description of the Y-14+ data.
---------------------------------------------------------------------------
Prior to the passage of the CARD Act in 2009, the average late fee
was $33 for issuers in the Bureau's Credit Card Database (CCDB) which
includes information on the full consumer and small business credit
card portfolios of large credit card lenders, covering approximately 85
percent of all credit card accounts in the U.S. between April 2008 and
April 2016.\25\ With the effective date of the safe harbor threshold
amounts in 2010, the average late fee in the CCDB declined by over $10
to $23 in the fourth quarter of 2010.\26\
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\25\ Bureau of Consumer Fin. Prot., Card Act Report, at 23 (Oct.
2013) (2013 Report), https://files.consumerfinance.gov/f/201309_cfpb_card-act-report.pdf. From 2008 to 2015, the Bureau used
the CCDB to measure the amount of average late fees to include in
the CARD Act reports that the Bureau releases every two years. In
its 2017 report, the Bureau started using the Y-14 data to measure
the amount of average late fees to include in its CARD Act reports
and began using the Y-14+ data to calculate metrics including
average late fee beginning with its 2019 report. See part III.C for
a description of the Y-14 and Y-14+ data.
\26\ Id.
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However, from 2010 through the onset of the COVID-19 pandemic,
issuers had steadily been charging consumers more in credit card late
fees each year--peaking at over $14 billion in total late fee volume
for issuers contained in the Y-14+ data in 2019.\27\ At the end of
2012, the average late fee for major issuers in the CCDB reached about
$27.\28\ It remained at about that level until rising to $28 in 2018
for issuers in the Y-14+, consistent with the first safe harbor
adjustment for inflation in 2014.\29\ In 2019, the average late fee
charged by credit card issuers in the Y-14+ rose to $31, approaching
nominal pre-CARD Act levels.\30\ The total volume of late fees assessed
by issuers in the Y-14+ declined to about $12 billion in 2020 given
record-high payment rates and public and private relief efforts.\31\
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\27\ Late Fee Report, at 4.
\28\ 2013 Report, at 23.
\29\ Bureau of Consumer Fin. Prot., The Consumer Credit Card
Market, at 69 (Dec. 2019) (2019 Report), https://files.consumerfinance.gov/f/documents/cfpb_consumer-credit-card-market-report_2019.pdf.
\30\ Late Fee Report, at 6.
\31\ Late Fee Report, at 5; Bureau of Consumer Fin. Prot., The
Consumer Credit Card Market, at 117 (Sept. 2021) (2021 Report),
https://files.consumerfinance.gov/f/documents/cfpb_consumer-credit-card-market-report_2021.pdf.
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E. Credit Card Issuers' Use of the Late Fee Safe Harbor
Currently, Sec. 1026.52(b)(1)(ii) sets forth a safe harbor of $30
generally for a late payment, except that it sets forth a safe harbor
of $41 for each subsequent late payment within the next six billing
cycles. A card issuer is not required to use the cost analysis
provisions in Sec. 1026.52(b)(1)(i) to determine the amount of late
fees if it complies with these safe harbor amounts.\32\
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\32\ See comment 52(b)(1)-1.i.A.
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An analysis of credit card agreements found no evidence of any
issuers using the cost analysis provisions to charge an amount higher
than the safe harbor.\33\ Most large issuers have taken advantage of
the increased safe harbors as adjusted for inflation by increasing
their fee amounts.\34\ Eighteen of the top 20 issuers by outstanding
balances contracted a maximum late fee at or near the higher safe
harbor amount of $40 in 2020 based on analysis of the maximum late fee
disclosed by an institution in agreements submitted to the Bureau's
Credit Card Agreement Database in the fourth quarter of that year.\35\
Yet, the most common maximum late fee disclosed in agreements submitted
to the Bureau was $25, as driven by the practices of smaller banks and
credit unions not in the top 20 issuers by asset size.\36\ Finally, a
small but growing number of issuers offer credit card products with no
late fees.\37\
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\33\ Late Fee Report, at 14.
\34\ Id.
\35\ Id. The Credit Card Agreement Database is available at
https://www.consumerfinance.gov/credit-cards/agreements.
\36\ Late Fee Report, at 14.
\37\ Id. at 15.
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Some card issuers, however, may be disincentivized to lower late
fee amounts below the safe harbor, given that the industry as a whole
continues to rely on late fees as a source of revenue and many
consumers may not shop for credit cards based on the amount of the late
fee. For banks in the Y-14+ data, late fees represented 10 percent of
charges to consumers in 2020, but individual card issuers' revenue from
late fees varied.\38\ The share of late fees for individual issuers in
the Y-14+ data ranged from a minimum of four percent to a maximum of 31
percent of total consumer charges in 2019. Among issuers there is a
strong correlation between reliance on late fees and concentration of
subprime accounts. Yet, the industry as a whole continues to rely on
late fees as a source of revenue.\39\ Given the amount of revenue that
late fees generate, card issuers may not have an incentive to charge
late fees lower than the safe harbor amount.
---------------------------------------------------------------------------
\38\ Id. at 13.
\39\ Id. at 14.
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In addition, many consumers may not shop for credit cards based on
the amount of late fees, which also may lessen card issuers incentive
to charge late fees lower than the safe harbor amount. Survey data
suggest that other factors, such as rewards, annual fees, and annual
percentage rate(s) (APR), drive credit card usage.\40\ In addition,
recent academic work \41\ directly observed that credit card offers
highlight rewards, annual fees, and APRs more than late fees based on
the position of the information and the size of the font. Only 6.06
percent of the 611,797 card offers in their data spanning from 1999 to
2007 mentioned late fees on the front page, with an average font size
of 9.56. In contrast, (1) rewards were displayed on the front page
93.68 to 100 percent of the time (depending on the type of rewards)
with an average font size of 12.12 to 16.56; (2) the annual fee was
disclosed on the front page 78.02 percent of the time with an average
font size of 13.39; and (3) APRs were displayed on the front page 27.95
[[Page 18909]]
percent of the time with an average font size of 13.02. The Bureau
notes that the authors of the study explained that they excluded the
post-2007 data ``to abstract from the impact of the 2008 financial
crisis and the [CARD Act] in 2009.'' \42\ However, the authors also
stated that ``the main results are qualitatively and quantitatively
very similar if we include data until 2016.'' \43\
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\40\ Karen Augustine, U.S. Consumers and Credit: Rising Usage,
Mercator Advisory Group, at 40 (2018).
\41\ Hong Ru & Antoinette Schoar, Do Credit Card Companies
Screen for Behavioural Biases? (Feb. 12, 2020), BIS Working Paper
No. 842, https://ssrn.com/abstract=3549532.
\42\ Id. at 12.
\43\ Id.
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F. Consumer Impact of Late Fees
Late fees represent over one-tenth of the $120 billion issuers
charge to consumers in interest and fees, totaling over $14 billion in
2019.\44\ A small share of accounts in low credit score tiers incur a
high proportion of late fees.\45\ Overall, the average deep subprime
account in the Y-14 data (discussed in part III.C) was charged $138 in
late fees in 2019, compared with $11 for the average superprime
account.\46\ The higher incidence of late fees for accounts in lower
tiers, combined with higher average charges for repeat late fees within
six billing cycles of the initial late fee, drives this disparity.\47\
---------------------------------------------------------------------------
\44\ Late Fee Report, at 4.
\45\ Id. at 7.
\46\ Id. at 8.
\47\ Id.
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Credit card accounts in the Y-14 data held by cardholders living in
the U.S.' poorest neighborhoods paid twice as much on average in total
late fees than those in the richest areas.\48\ Cardholders in majority-
Black areas paid more in late fees for each card they held with major
credit card issuers in 2019 than majority white areas.\49\ And people
in areas with the lowest rates of economic mobility paid nearly $10
more in late fee charges per account compared to people in areas with
the highest rates of economic mobility.\50\
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\48\ Id. at 9.
\49\ Id. at 10.
\50\ Id. at 11.
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G. Other Consequences to Consumers of Late Payment
When a consumer does not make at least the minimum payment by the
periodic statement due date, a late fee may not be the only
consequence. However, the effect of a missed payment depends on
cardholder conduct both prior to and after the due date.
For cardholders who typically pay their balance in full every month
(so-called transactors), a late payment generally means both a late fee
and new interest incurred for carrying or revolving a balance. For the
cardholders who do not roll over a balance in the month before or after
a late fee is assessed, the loss of a grace period \51\ and coinciding
interest charges may pose a similar or even greater burden than the
late fee itself. For cardholders who regularly revolve a balance from
one month to the next, a late fee is the main financial consequence of
a missed payment if the payment is made prior to the next statement due
date, as the additional interest charges on the unpaid minimum amount
due for a limited number of days will likely be minimal.
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\51\ A grace period is a period within which credit extended may
be repaid without incurring a finance charge due to a periodic
interest rate. See, e.g., Sec. 1026.6(b)(2)(v) and comments
5(b)(2)(ii)-3.i and 54(a)(1)-2.
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However, if a consumer does not make at least the minimum payment
due for more than one billing cycle, non-payment may carry more severe
consequences. After approximately 30 days, consumers' credit scores may
decline after issuers report the delinquency to credit bureaus. A card
issuer also may take actions to reprice new transactions on the account
according to a penalty rate, if permitted under Sec.
1026.55(b)(3).\52\ After 60 days, issuers may take action to reprice
the entire outstanding balance on the account according to a penalty
rate, if permitted under Sec. 1026.55(b)(4). At any point as an
account becomes more delinquent, an issuer may take steps to reduce a
cardholder's credit line or suspend use of the card, limit their
earning or redemption of rewards, or increase outreach to collect the
outstanding debt. After 180 days of delinquency, an issuer will
typically close and charge off the credit card account which may carry
a large and long-term financial penalty for a consumer.
---------------------------------------------------------------------------
\52\ If a consumer does not make the required payment by the due
date, Sec. 1026.55(b)(3) permits a card issuer to take actions to
reprice new transactions on the account according to a penalty rate
in certain circumstances. The Bureau understands, however, that most
card issuers do not take actions to reprice new transactions to the
penalty rate until the consumer is more than 60 days late. 2021
Report, at 51.
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III. Summary of Rulemaking Process
A. Advance Notice of Proposed Rulemaking
On June 22, 2022, the Bureau issued an advance notice of proposed
rulemaking (ANPR) seeking information from credit card issuers,
consumer groups, and the public regarding credit card late fees and
late payments, and card issuers' revenue and expenses.\53\ Areas of
inquiry included: (1) factors used by card issuers to set late fee
amounts; (2) card issuers' costs and losses associated with late
payments; (3) the deterrent effects of late fees; (4) cardholders' late
payment behavior; (5) methods that card issuers use to facilitate or
encourage timely payments, including automatic payment and
notifications; (6) card issuers' use of the late fee safe harbor
provisions in Regulation Z; and (7) card issuers' revenue and expenses
related to their domestic consumer credit card operations. The Bureau
received 43 comments in response to the ANPR.
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\53\ 87 FR 38679 (June 29, 2022).
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Consumer group commenters generally recommended that the Bureau:
(1) more closely tailor late fees to the amount of the debt owed by the
cardholder, such as by establishing a sliding scale for the safe harbor
amount so that late fees are proportional to the account balance and by
capping the amount of late fees that can be imposed for an account
during the year; (2) require a mandatory waiting period of several days
before a late fee can be assessed; (3) decline to incorporate
deterrence as a factor in setting late fee rules and safe harbor
amounts; (4) consider the savings to issuers of providing online-only
statements in determining the costs of collecting late payments, (5)
require a postal mail notification before a late fee can be imposed for
an online-only account; and (6) exclude the costs of being a furnisher
of information to consumer reporting agencies from the costs of
collecting late payments.
Card issuers and their trade groups that commented on the ANPR
generally opposed revisions to Regulation Z's safe harbor provisions
related to late fees, including lowering the safe harbor amounts.
Several industry trade groups asserted that although the current safe
harbor amounts do not cover all the costs associated with late payments
and are not as effective a deterrent as higher fees would be, they
cover a significant portion of issuer costs, deter late payments, and
provide legal certainty to card issuers. Card issuers and trade group
commenters, however, did not provide detailed information on the type
of costs, and the dollar amount of the costs, they incur to collect
late payments. Card issuers and their trade groups commenters also
generally opposed eliminating the safe harbor provisions and requiring
card issuers to use the cost analysis provisions in Sec.
1026.52(b)(1)(i) to determine the amount of late fees a card issuer is
permitted to charge. Several industry trade group commenters asserted
that reducing or eliminating the safe harbor would reduce credit access
and increase the cost of credit. One trade group commenter asserted
that smaller
[[Page 18910]]
creditors and community banks, particularly those that extend credit to
consumers who are trying to build or repair their credit, have
proportionately higher compliance costs and would face the most risk if
the safe harbor was reduced or eliminated, limiting their ability to
continue to offer credit products at the same terms. Several industry
trade group commenters also asserted that because lowering the safe
harbor would have a significant impact on small financial institutions,
the Bureau must comply with the Small Business Regulatory Enforcement
Fairness Act (SBREFA) by convening a SBREFA panel in any late fee
rulemaking. Several industry trade group commenters also indicated that
if the safe harbor were eliminated, the Bureau would need to provide
significantly more detail and clarity around the costs included in the
late fee amount calculation under Sec. 1026.52(b)(1)(i).
B. CARD Act Consultation With Certain Federal Agencies
Consistent with the CARD Act, the Bureau consulted with the
following agencies regarding rules that implement TILA section 149: (1)
the Comptroller of the Currency; (2) the Board of Directors of the
Federal Deposit Insurance Corporation; and (3) the National Credit
Union Administration Board.\54\ The Bureau also consulted with the
Board and several other federal agencies, as discussed in part VII.
---------------------------------------------------------------------------
\54\ 15 U.S.C. 1665d(b) and 1665d(e).
---------------------------------------------------------------------------
C. Y-14 Data Considered for This Proposal
As discussed in more detail in the section-by-section analysis in
part V, the Bureau has considered data in developing this proposal that
the Board collects as part of its Y-14M (Y-14) data. Since June 2012,
the Board has collected these data monthly from bank holding companies
with total consolidated assets exceeding $50 billion. For this
collection, surveyed financial institutions report comprehensive data
on their assets on the last business day of each calendar month. These
data are used to support the Board's supervisory stress test models and
provide one source of data for the Bureau's biennial report to Congress
on the consumer credit card market.\55\ These data contain reported
information on the following four metrics used in developing this
proposal:
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\55\ See Bd. of Governors. of the Fed. Rsrv. Sys., Report Forms
FR Y-14M, https://www.federalreserve.gov/apps/reportforms/reportdetail.aspx?sOoYJ+5BzDYnbIw+U9pka3sMtCMopzoV (for more
information on the Y-14M collection). The Bureau is one of several
government agencies with whom the Board shares the data. Information
in the Y-14 data do not include any personal identifiers.
Additionally, accounts associated with the same consumer are not
linked across or within issuers. The Y-14 data also does not include
transaction-level data pertaining to consumer purchases.
---------------------------------------------------------------------------
Late Fee Income: Reported net fee income assessed for late or
nonpayment accounts in a given domestic credit card portfolio by card
type (e.g., general purpose or private label). This is late fee income
for the Bureau's purposes, as discussed in the section-by-section
analysis of Sec. 1026.52(b)(1)(ii).
Collection Costs: Reported costs incurred to collect problem
credits that include the total collection cost of delinquent, recovery,
and bankrupt accounts. Issuers report these aggregate costs monthly for
their domestic credit card portfolios and separately by credit card
type.\56\ These reported costs do not include losses and associated
costs.\57\
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\56\ Types include General Purpose, Private Label, Business, and
Corporate cards.
\57\ Issuers report projected losses, the dollar amount of
charge-offs and any associated recoveries, interest expense, and
loan loss provisions separately.
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Late Fee Amount: Reported amount of the late fee charged on a
particular account in a particular month.
Total Required Payments: Reported total payment amount on a
particular account in a particular month, including any missed payments
or fees that were required to be paid in a particular billing cycle.
This typically includes the minimum payment due, past due payments, and
any amount reported as over the credit limit.
The Y-14 data received by the Bureau cover the period from the
middle of 2012 through September 2022 and are provided by issuers that
accounted for just under 70 percent of outstanding balances on U.S.
consumer credit cards as of year-end 2020. For the purposes of the
analysis using these data as described in part V, the Bureau only
considered account- and portfolio-level data for issuers in a given
month for consumer general purpose and private label credit cards for
which there existed data on late fee income, collection costs, late fee
amounts, and total required payments in the Y-14 data. With respect to
credit card data, the Bureau receives the complete portfolio data
(including late fee income and collection costs) for all the card
issuers included in the data collection. The Bureau receives only a
random 40 percent subsample of account information (including late fee
amounts and total required payments) reported by card issuers included
in the data collection.
Collection costs in the Y-14 data include both pre-charge-off and
post-charge-off collection costs. As discussed in the section-by-
section analysis of Sec. 1026.52(b)(1)(i), the Bureau proposes to
amend comment 52(b)(1)(i)-2.i to clarify that costs for purposes of the
cost analysis provisions in Sec. 1026.52(b)(1)(i) for determining
penalty fee amounts do not include any collection costs that are
incurred after an account is charged off pursuant to loan loss
provisions.
Consistent with that proposed clarification, the Bureau estimated
the percentage of collection costs that may occur after charge-off so
that they could be excluded from the collection costs in the Y-14 data.
The Bureau notes that the most significant post-charge-off collection
costs are likely to be commissions paid to third-party debt collectors
for charged-off accounts. The Bureau understands that such commission
payments, made to third-party debt collection companies, would be made
almost exclusively in connection with accounts that have been charged
off, and represent a conservative estimate of post-charge-off
collection costs, as there may be other costs associated with
collections post-charge-off beyond such commission payments.
The Bureau estimated from debt collection reports the commission
expenses that six major card issuers paid in 2019 and 2020,
representing 91 percent of balances and 93 percent of collection costs
among portfolios with positive collection expenses reported in the Y-14
data in the twelve months leading up to August 2022.\58\ The
methodology for estimating post-charge-off commissions considered the
amount of charged-off balances and then estimated the commission on the
volume of recovered balances by using the recovery and commission
rates.\59\
[[Page 18911]]
Based on these commission expenses that these six major card issuers
paid in 2019 and 2020 to third-party debt collectors for charged-off
accounts, the Bureau estimated that these post-charge-off costs are
around 25 percent of total collection costs for these issuers; the
average ratio was 27 percent in 2019 and 21 percent in 2020. In 2019,
the median ratio of estimated post-charge-off commission costs to
annual collection costs in the Y-14 for individual issuers was 28
percent; in 2020, it was 23 percent. Based on this data, the Bureau
estimated that pre-charge-off collection costs were equal to 75 percent
of the collection costs included in the Y-14 data for purposes of its
analysis related to the proposed changes to the safe harbor thresholds
for late fees in Sec. 1026.52(b)(1)(ii).
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\58\ As part of its review of the practices of credit card
issuers for its biennial review of the consumer credit card market,
the Bureau surveys several large issuers to better understand
practices and trends in credit card debt collection. These data
provided in response to data filing orders served as the basis of
this calculation. For more information on these data, see 2021
Report, at 17.
\59\ For example, if an issuer had a total of $1 million in
newly charged-off balances in a given year, a cumulative recovery
rate for that year of five percent, and a post-charge-off commission
rate of 20 percent, the Bureau would estimate the post-charge-off
commission costs to be $10,000. To calculate the post-charge-off
collection costs as a share of total cost of collections, the Bureau
then divided the estimated post-charge-off commission costs by the
total collection costs the bank reported in the Y-14 data. For
issuers who sell debt, the cost of collections calculation uses
charge-off balances net of asset sales. The commission rate for each
issuer is an average weighted by the share of post-charge-off
balances in each tier placement (e.g., primary, secondary, and
tertiary placements).
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As discussed in more detail in the section-by-section analysis in
part V, the Bureau also considered Y-14+ data in developing this
proposal. The Y-14+ data includes information from the Board's Y-14
data and a diverse group of specialized issuers.
IV. Legal Authority
A. Section 1022 of the Dodd-Frank Act
Section 1022(b)(1) of the Dodd-Frank Act authorizes the Bureau to
prescribe rules ``as may be necessary or appropriate to enable the
Bureau to administer and carry out the purposes and objectives of the
Federal consumer financial laws, and to prevent evasions thereof.''
\60\ Among other statutes, title X of the Dodd-Frank Act and TILA are
Federal consumer financial laws.\61\ Accordingly, in issuing this
proposed rule, the Bureau proposes to exercise its authority under
Dodd-Frank Act section 1022(b)(1) to prescribe rules under TILA and
title X that carry out the purposes and objectives and prevent evasion
of those laws.
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\60\ 12 U.S.C. 5512(b)(1).
\61\ Dodd-Frank Act section 1002(14); codified at 12 U.S.C.
5481(14) (defining ``Federal consumer financial law'' to include the
``enumerated consumer laws'' and the provisions of title X of the
Dodd-Frank Act); Dodd-Frank Act section 1002(12); codified at 12
U.S.C. 5481(12) (defining ``enumerated consumer laws'' to include
TILA).
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B. The Truth in Lending Act
As amended by the Dodd-Frank Act, TILA section 105(a) \62\ directs
the Bureau to prescribe regulations to carry out the purposes of TILA,
and provides that such regulations may contain additional requirements,
classifications, differentiations, or other provisions, and may provide
for such adjustments and exceptions for all or any class of
transactions, that, in the judgment of the Bureau, are necessary or
proper to effectuate the purposes of TILA, to prevent circumvention or
evasion thereof, or to facilitate compliance. Pursuant to TILA section
102(a), a purpose of TILA is to assure a meaningful disclosure of
credit terms to enable the consumer to avoid the uninformed use of
credit and compare more readily the various credit terms available to
the consumer. This stated purpose is tied to Congress's finding that
economic stabilization would be enhanced and competition among the
various financial institutions and other firms engaged in the extension
of consumer credit would be strengthened by the informed use of
credit.\63\ Thus, strengthened competition among financial institutions
is a goal of TILA, achieved through the effectuation of TILA's
purposes.
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\62\ 15 U.S.C. 1604(a).
\63\ TILA section 102(a), codified at 15 U.S.C. 1601(a).
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As described above, the CARD Act was signed into law on May 22,
2009,\64\ and the Act amended TILA \65\ by adding section 149, which
provides, among other things, that the amount of any penalty fee with
respect to a credit card account under an open-end consumer credit plan
in connection with any omission with respect to, or violation of, the
cardholder agreement, including any late payment fee or any other
penalty fee or charge, must be ``reasonable and proportional'' to such
omission or violation.\66\
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\64\ Public Law 111-24, 123 Stat. 1734 (2009).
\65\ 15 U.S.C. 1601 et seq.
\66\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(a)).
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At the time of its passage, the CARD Act required the Board to
issue rules establishing standards for assessing the reasonableness and
proportionality of such penalty fees, with a statutory deadline of
February 22, 2010 for issuing this required rule.\67\ The Act also
authorized the Board to establish different standards for different
types of fees and charges, as appropriate.\68\ The CARD Act also
allowed, but did not require, the Board to issue rules to provide for a
safe harbor amount for any such penalty fee that is presumed to be
reasonable and proportional to such omissions or violations.\69\ This
grant of discretionary authority did not include a deadline. The Board
issued a rule on June 29, 2010, completing the required rulemaking (now
contained in the Bureau's Regulation Z, 12 CFR 1026.52(b)(1)(i)) and
adding a discretionary portion (now contained in the Bureau's
Regulation Z, 12 CFR 1026.52(b)(1)(ii)) with safe harbors.
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\67\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(b)).
\68\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(d)).
\69\ CARD Act section 102, 123 Stat. 1740 (15 U.S.C. 1665d(e)).
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On July 21, 2011, the Board's rulemaking authority to implement the
provisions of TILA, including TILA section 149, transferred to the
Bureau pursuant to sections 1061 and 1100A of the Dodd-Frank Act.\70\
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\70\ Public Law 111-203, 124 Stat. 1376 (2010).
---------------------------------------------------------------------------
For the reasons discussed in this proposal, the Bureau proposes to
amend certain provisions in Regulation Z that impact the amount of late
fees that card issuers can charge to carry out TILA's purposes and
proposes such additional requirements, adjustments, and exceptions as,
in the Bureau's judgment, may be necessary and proper to carry out the
purposes of TILA, prevent circumvention or evasion thereof, or to
facilitate compliance. In developing these aspects of this proposal
pursuant to its authority under TILA section 105(a), the Bureau has
considered the purposes of TILA, including ensuring meaningful
disclosures, facilitating consumers' ability to compare credit terms,
and helping consumers avoid the uninformed use of credit, and the
findings of TILA, including strengthening competition among financial
institutions and promoting economic stabilization.
The Bureau also has analyzed whether the current safe harbor
threshold amounts for late fees are reasonable and proportional to a
cardholder's omission or violation. In considering the appropriate
amount, the Bureau is guided by factors including (1) the cost incurred
by the creditor from an omission or violation; (2) the deterrence of
omissions or violations by the cardholder; (3) the conduct of the
cardholder; and (4) such other factors deemed necessary or appropriate.
V. Section-by-Section Analysis
Section 1026.7 Periodic Statement
7(b) Rules Affecting Open-End (Not Home-Secured) Plans
7(b)(11) Due Date; Late Payment Costs
Section 1026.7(b) sets forth the disclosure requirements for
periodic statements that apply to open-end (not home-secured) plans.
Section 1026.7(b)(11) generally requires that for a credit card account
under an open-end (not home-secured) consumer credit plan, a card
issuer must provide on each periodic statement: (1) the due date for a
payment and the due date must be the same day of the month for each
billing cycle; and (2) the amount of any late
[[Page 18912]]
payment fee and any increased periodic rate(s) (expressed as APRs) that
may be imposed on the account as a result of a late payment.
Currently, comment 7(b)(11)-4 provides that for purposes of
disclosing the amount of any late payment fee and any increased APR
that may be imposed on the account as a result of a late payment under
Sec. 1026.7(b)(11), a card issuer that imposes a range of late payment
fees or rates on a credit card account under an open-end (not home-
secured) consumer credit plan may state the highest fee or rate along
with an indication lower fees or rates could be imposed. Comment
7(b)(11)-4 also provides an example to illustrate how a card issuer may
meet the standard set forth above, stating that a phrase indicating the
late payment fee could be ``up to $29'' complies with this standard.
The proposed rule would amend comment 7(b)(11)-4 to read ``up to $8''
so that the late fee amount in the example would be consistent with the
proposed $8 late fee safe harbor amount set forth in proposed Sec.
1026.52(b)(1)(ii).
Section 1026.52 Limitations on Fees
52(a) Limitations During First Year After Account Opening
52(a)(1) General Rule
Section 1026.52(a)(1) generally provides that the total amount of
fees a consumer is required to pay with respect to a credit card
account under an open-end (not home-secured) consumer credit plan
during the first year after account opening must not exceed 25 percent
of the credit limit in effect when the account is opened. Section
1026.52(a)(2) provides that late payment fees, over-the-limit fees, and
returned-payment fees; or other fees that the consumer is not required
to pay with respect to the account are excluded from the fee limitation
set forth in Sec. 1026.52(a)(1).
Comment 52(a)(1)-1 provides that the 25 percent limit in Sec.
1026.52(a)(1) applies to fees that the card issuer charges to the
account as well as to fees that the card issuer requires the consumer
to pay with respect to the account through other means (such as through
a payment from the consumer's asset account to the card issuer or from
another credit account provided by the card issuer). Comment 52(a)(1)-1
also provides four examples to illustrate the provision set forth
above. The two examples in comment 52(a)(1)-1.i and iv contain late fee
amounts of $15. The proposed rule would amend the two examples in
comment 52(a)(1)-1.i and iv to use a late fee amount of $8, so that the
late fee amounts in the examples are consistent with the proposed $8
late fee safe harbor amount set forth in proposed Sec.
1026.52(b)(1)(ii).
52(b) Limitations on Penalty Fees
52(b)(1) General Rule
Section 1026.52(b) provides that a card issuer must not impose a
fee for violating the terms or other requirements of a credit card
account under an open-end (not home-secured) consumer credit plan
unless the issuer has determined that the dollar amount of the fee
represents a reasonable proportion of the total costs incurred by the
issuer for that type of violation as set forth in Sec.
1026.52(b)(1)(i) (referred to herein as the cost analysis provisions)
or complies with the safe harbor provisions set forth in Sec.
1026.52(b)(1)(ii). It further provides that a card issuer must not
impose such a fee unless the fee is consistent with certain
prohibitions set forth in Sec. 1026.52(b)(2), including a prohibition
in Sec. 1026.52(b)(2)(i)(A) on imposing a penalty fee that exceeds the
dollar amount associated with the violation, which currently prohibits
late fees that exceed 100 percent of the required minimum payment.\71\
The commentary to Sec. 1026.52(b) explains that penalty fees subject
to its provisions include late fees, returned-payment fees, and fees
for over-the-limit transactions, among others.\72\
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\71\ See comment 52(b)(2)(i)-1.
\72\ See comment 52(b)(1)-1.
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As discussed in the section-by-section analysis of Sec.
1026.52(b)(1)(ii) below, the Bureau proposes to amend Sec.
1026.52(b)(1)(ii) to lower the safe harbor dollar amount for late fees
to $8 (currently set at $30) and to provide that the higher safe harbor
dollar amount for subsequent violations of the same type that occur
during the same billing cycle or in one of the next six billing cycles
(currently set at $41) does not apply to late fees.\73\
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\73\ As discussed in the section-by-section analysis of Sec.
1026.52(b)(1)(ii)(C) below, the Bureau is not proposing to lower or
otherwise change the safe harbor amount of a late fee that card
issuers may impose when a charge card account becomes seriously
delinquent.
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In addition, as discussed in more detail below, the Bureau proposes
to provide that the current provision in Sec. 1026.52(b)(1)(ii)(D)
that provides for annual inflation adjustments for the safe harbor
dollar amounts would not apply to the safe harbor amount for late fees.
Also, as discussed in the section-by-section analysis of Sec.
1026.52(b)(2)(i) below, the Bureau proposes to amend Sec.
1026.52(b)(2)(i)(A) to provide that late fee amounts may not exceed 25
percent of the required minimum payment.
The Bureau also proposes one clarification that would apply to
penalty fees generally. Specifically, the Bureau proposes to amend
comment 52(b)(1)(i)-2.i to clarify that costs for purposes of the cost
analysis provisions in Sec. 1026.52(b)(1)(i) for determining penalty
fee amounts do not include any collection costs that are incurred after
an account is charged off pursuant to loan loss provisions.
The Bureau is not proposing to amend the lead-in text of Sec.
1026.52(b)(1). However, for consistency with the proposed amendments to
other provisions in Sec. 1026.52(b) and for clarity, the Bureau
proposes certain amendments to the commentary to Sec. 1026.52(b) and
(b)(1). Specifically, the Bureau proposes to amend comment 52(b)-1.i.A
to clarify that a late payment fee or late fee is any fee imposed for a
late payment and to include a cross-reference to Sec. 1026.60(b)(9)
and accompanying commentary for further guidance. The Bureau also
proposes to amend comment 52(b)-2, which provides an illustrative
example of how to round a penalty fee to the nearest whole dollar in
compliance with the rule. The proposed amendments would reduce the
dollar amounts of late fees in the example to reflect amounts that
would be permissible under the Bureau's proposals to lower the late fee
safe harbor amount to $8 and to cap late fees at 25 percent of the
required minimum payment. In addition, the Bureau proposes to add new
comment 52(b)-5 to clarify that any dollar amount examples in the
commentary to Sec. 1026.52(b) relating to the safe harbors in Sec.
1026.52(b)(1) are based on the original historical safe-harbor
thresholds of $25 and $35 for penalty fees other than late fees, and on
the proposed threshold of $8 for late fees. This proposed clarification
would help explain why the dollar amounts for penalty fees other than
late fees are different from the ones set forth in the regulatory text
in Sec. 1026.52(b)(1)(ii)(A) and (B).
The Bureau also proposes to amend comments 52(b)(1)-1.i.B and C,
which illustrate the relationship between the cost analysis provisions
in Sec. 1026.52(b)(1)(i) and the safe harbor provisions in Sec.
1026.52(b)(1)(ii). The Bureau proposes to amend the illustrative
example in comment 52(b)(1)-1.i.B to reflect a late fee amount
consistent with the proposal. In addition, because the Bureau proposes
to substantially amend the safe harbor provisions for late fees, the
Bureau proposes to remove references to late fees from the illustrative
examples in comment 52(b)(1)-1.i.C and replace
[[Page 18913]]
them with references to over-the-limit fees.
In addition, the Bureau proposes to amend comment 52(b)(1)-1.ii,
which illustrates the relationship between the penalty fee limitations
in Sec. 1026.52(b)(1) and the prohibitions in Sec. 1026.52(b)(2). The
proposed amendments would reduce the dollar amount of a late fee in the
example to reflect an amount that would be consistent with the Bureau's
proposal to lower the late fee safe harbor amount.
The Bureau solicits comment on all aspects of these proposed
amendments to the commentary to Sec. 1026.52(b) and (b)(1), including
comment on what additional amendments may be needed to help ensure
clarity and compliance certainty.
52(b)(1)(i) Fees Based on Costs
As noted above, under the cost analysis provisions in Sec.
1026.52(b)(1)(i), a card issuer may impose a fee for violating the
terms or other requirements of an account consistent with the general
rule in Sec. 1026.52(b)(1) if the card issuer has determined that the
dollar amount of the fee represents a reasonable proportion of the
total costs incurred by the card issuer as a result of that type of
violation. Section 1026.52(b)(1)(i) further provides that a card issuer
must reevaluate that determination at least once every 12 months and
sets forth certain other requirements and conditions that apply if, as
a result of the reevaluation, the card issuer determines that either a
lower or higher fee represents a reasonable proportion of the total
costs incurred by the card issuer as a result of that type of
violation.
The Bureau is not proposing to amend the text of Sec.
1026.52(b)(1)(i). However, for purposes of clarity and compliance
certainty, the Bureau proposes to revise comment 52(b)(1)(i)-2.i to
clarify that the costs that card issuers can consider for purposes of
determining the amount of a penalty fee under the cost analysis
provisions in Sec. 1026.52(b)(1)(i) do not include collection costs
that are incurred after an account is charged off in accordance with
loan-loss provisions.
Comment 52(b)(1)(i)-1 currently provides that card issuers may
include in the costs for determining the amount of a penalty fee ``the
costs incurred . . . as a result of [the] violation.'' Comment
52(b)(1)(i)-2 addresses amounts not considered costs incurred by a card
issuer as a result of violations of the terms or other requirements of
an account for purposes of Sec. 1026.52(b)(1)(i). Comment 52(b)(1)(i)-
2.i provides that one such amount that cannot be considered as costs
incurred for purposes of Sec. 1026.52(b)(1)(i) are losses and
associated costs (including the cost of holding reserves against
potential losses and the cost of funding delinquent accounts).
The Bureau proposes to amend comment 52(b)(1)(i)-2.i to clarify the
``losses and associated costs'' that card issuers may not consider as
costs incurred for purposes of Sec. 1026.52(b)(1)(i) include any
collection costs that are incurred after an account is charged off in
accordance with loan-loss provisions. The Bureau's proposal, therefore,
would make it explicit that for any collection costs that a card issuer
incurs after an account has been charged off are not considered costs
incurred for purposes of Sec. 1026.52(b)(1)(i). The Bureau understands
that when an account has been charged off, the card issuer has written
the account off as a loss; therefore, any cost in collecting amounts
owed to a card issuer that are incurred post-charge-off is related to
mitigating a loss as opposed to the cost of a violation of the account
terms. As the Board noted in its 2010 Final Rule ``it would be
inconsistent with the purpose of the [CARD Act] to permit card issuers
to begin recovering losses and associated costs through penalty fees
rather than through upfront rates.'' \74\
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\74\ 75 FR 37526, 37538 (June 29, 2010).
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The Bureau received two comments to the ANPR that indicated there
may be a need to clarify that costs of collecting amounts owed to a
card issuer incurred after an account is charged off are costs related
to a loss and, therefore, cannot be considered as costs incurred for a
violation of account terms for purposes of Sec. 1026.52(b)(1)(i). For
instance, one industry trade group commenter noted that, for example,
late fees are meant to cover, among other things, the charge-off costs
associated with late payments. Another industry credit union commenter
similarly explained that late fees help offset the charge-off on
accounts not paid by consumers. Given the two comments suggesting
potential confusion, the Bureau proposes to clarify that such costs
cannot be considered for purposes of Sec. 1026.52(b)(1)(i).
The Bureau solicits comment on this proposed clarification of the
commentary to Sec. 1026.52(b)(1)(i), including comment on whether any
additional clarification may be needed. The Bureau also solicits
comment on whether there are other specific clarifications that should
be made to the provisions of the commentary providing guidance on how
to perform a cost analysis under the rule.
52(b)(1)(ii) Safe Harbors
Overview of Proposed Amendments to Late Fee Safe Harbor Provisions
As noted in part I, the Bureau is concerned that (1) the safe
harbor dollar amounts for late fees currently set forth in Sec.
1026.52(b)(1)(ii) are not reasonable and proportional to the omission
or violation to which the fee relates; (2) the current higher safe
harbor threshold for late fees for subsequent violations of the same
type in the same billing cycle or in one of the next six billing cycles
is higher than is justified based on consumer conduct and to deter
future violations and, indeed, a late fee that is too high could
interfere with the consumers' ability to make future payments on the
account; and (3) additional restrictions on late fees may be needed to
ensure that late fees are reasonable and proportional. To address these
concerns, the Bureau proposes to amend Sec. 1026.52(b)(1)(ii) to lower
the safe harbor amounts for late fees--currently set at $30 and $41 for
a first and subsequent violation, respectively--to a late fee amount of
$8 for the first and subsequent violations.\75\ The Bureau's proposal
would eliminate the higher safe harbor amount for subsequent late
payment violations. As discussed below, based on analysis of available
evidence and consideration of the relevant factors, the Bureau
preliminarily determines that a late fee amount of $8 for the first and
subsequent violations is presumed to be reasonable and proportional to
the late payment violation to which the fee relates. In addition, for
the reasons discussed in the section-by-section analysis of Sec.
1026.52(b)(1)(ii)(D), the Bureau proposes to no longer apply to the
late fee safe harbor amount current Sec. 1026.52(b)(1)(ii)(D) that
provides for annual inflation adjustments for the safe harbor dollar
amounts.
---------------------------------------------------------------------------
\75\ As discussed in the section-by-section analysis of Sec.
1026.52(b)(1)(ii)(C) below, the Bureau is not proposing to lower or
otherwise change the safe harbor amount of a late fee that card
issuers may impose when a charge card account becomes seriously
delinquent.
---------------------------------------------------------------------------
The Bureau is not proposing at this time to similarly amend the
safe harbor provisions in Sec. 1026.52(b)(1)(ii) as they apply to
other types of penalty fees, including returned-payment fees, fees for
over-the-limit transactions, and declined access check fees. The Bureau
is limiting the proposed amendments to late fees because the $14
billion in late fees charged in 2019 account for nearly 99 percent of
all penalty fees imposed by major card issuers in the Y-14+
[[Page 18914]]
data \76\ and, as such, pose far greater consumer protection concerns
than do other penalty fees totaling less than $0.2 billion that year.
Moreover, as a result of their prevalence, late fees have produced a
substantial amount of data and other evidence that prompts and forms
the basis of this proposal. Further, the Bureau has determined that
proposing to lower the safe harbor amounts only for late fees is
consistent with its authority under TILA section 149(d), which
authorizes the Bureau, in issuing rules to implement the CARD Act's
penalty fee provisions, to establish ``different standards for
different types of fees and charges, as appropriate.'' \77\
Nonetheless, as discussed below, the Bureau solicits comment on several
issues related to penalty fees generally, including whether the safe
harbor dollar amount in Sec. 1026.52(b)(1)(ii)(A) should be similarly
lowered for all penalty fees, and the higher safe harbor amount
provision in Sec. 1026.52(b)(1)(ii)(B) should be similarly eliminated
for all penalty fees.
---------------------------------------------------------------------------
\76\ Late Fee Report, at 13.
\77\ 15 U.S.C. 1665d(c).
---------------------------------------------------------------------------
The Board's Implementing Rule and Findings
In the 2010 Final Rule implementing TILA section 149, the Board
established penalty fee safe harbor amounts of $25 for the first
violation and $35 for any additional violations of the same type that
occur during the same billing cycle or in one of the next six billing
cycles. In doing so, the Board indicated that it ``believes that these
amounts are generally consistent with the statutory factors of cost,
deterrence, and consumer conduct.'' \78\ In interpreting TILA section
149(a), the Board found that ``it appears that Congress intended the
words `reasonable and proportional' . . . to require that there be a
reasonable and generally consistent relationship between the dollar
amounts of credit card penalty fees and the violations for which those
fees are imposed, while providing the Board with substantial discretion
in implementing that requirement.'' \79\
---------------------------------------------------------------------------
\78\ 75 FR 37526, 37527 (June 29, 2010).
\79\ Id. at 37532.
---------------------------------------------------------------------------
The Board's Consideration of Costs. The cost-related data on which
the Board relied was limited. Although the Board received more than
22,000 comments on its proposed rule, the Board noted that ``relatively
few provided any data'' supporting a particular safe harbor amount.\80\
While one commenter suggested the average cost of collecting late
payments for credit card accounts issued by the largest issuers was
$28, the Board noted the comment ``significantly overstates the fee
amounts necessary to cover the costs incurred by large issuers as a
result of violations,'' as it included costs not incurred as a result
of violations, such as the cost of funding balances that would have
been charged off regardless of fees.\81\
---------------------------------------------------------------------------
\80\ Id. at 37541.
\81\ Id.
---------------------------------------------------------------------------
Given these limitations, instead of relying on data related to the
costs of collecting late payments in setting the safe harbor dollar
amounts in its Regulation Z, Sec. 226.52(b)(1)(ii)(A) and (B), the
Board primarily considered the following information in setting the
safe harbor dollar amounts: (1) the dollar amounts of late fees
currently charged by credit card issuers; (2) the dollar amounts of
late fees charged with respect to deposit accounts and consumer credit
accounts other than credit cards; (3) State and local laws regulating
late fees; (4) the safe harbor threshold for credit card default
charges established by the United Kingdom's Office of Fair Trading
(OFT) in 2006; (5) data related to deterrence that provides evidence on
whether the experience of incurring a late payment fee makes consumers
less likely to pay late for a period of time; and (6) data submitted by
a large credit card issuer that indicated that consumers who pay late
multiple times over a six-month period generally present a
significantly greater credit risk to issuers than consumers who pay
late a single time.
In establishing the safe harbor amounts, the Board concluded that
``it is not possible based on the available information to set safe
harbor amounts that precisely reflect the costs incurred by a widely
diverse group of card issuers and that deter the optimal number of
consumers from future violations,'' \82\ and stated its belief that the
safe harbor amounts established in the rule were ``generally sufficient
to cover issuers' costs and to deter future violations.'' \83\ The
Board further concluded that, based on the comments received in
response to its proposal, the $25 safe harbor in Sec.
226.52(b)(1)(ii)(A) for the first violation was sufficient to cover the
costs incurred by most small issuers as a result of violations.\84\
---------------------------------------------------------------------------
\82\ Id. at 37544.
\83\ Id.
\84\ Id. at 37542.
---------------------------------------------------------------------------
With respect to late payments, the Board stated its belief that
large issuers generally incur fewer collection and other costs on
accounts that experience a single late payment and then pay on time for
the next six billing cycles than on accounts that experience multiple
late payments during that period.\85\ The Board further reasoned that
even if $25 is not sufficient to offset all of the costs incurred by
some large issuers as a result of a single late payment, those issuers
will be able to recoup any unrecovered costs through upfront APRs and
other pricing strategies.\86\
---------------------------------------------------------------------------
\85\ Id.
\86\ Id.
---------------------------------------------------------------------------
With respect to the higher safe harbor amount in Sec.
226.52(b)(1)(ii)(B), the Board explained its belief that when an
account experiences additional violations that occur during the same
billing cycle or in one of the six billing cycles following the initial
violation, $35 would generally be sufficient to cover any increase in
the costs incurred by the card issuer.\87\ As discussed in more detail
below, the Board also explained its belief that the $35 safe harbor
amount would have a reasonable deterrent effect on additional
violations \88\ and was consistent with the consumer's conduct in
engaging in multiple violations of the same type within six billing
cycles.\89\
---------------------------------------------------------------------------
\87\ Id.
\88\ Id.
\89\ Id. at 37543.
---------------------------------------------------------------------------
The Board's Consideration of Deterrence. The Board did not
expressly discuss how it took deterrence into account in setting the
initial $25 penalty fee amount; instead, the Board limited its
discussion of that factor to the role it played in the Board's decision
to set a higher safe harbor amount for any additional violation of the
same type that occurred during the same billing cycle or in one of the
next six billing cycles. While the Board noted that it considered
deterrence in setting a higher amount generally, the Board did not have
specific data justifying the $35 amount. The Board noted that one
commenter on the proposal submitted the results of applying two
deterrence modeling methods to data gathered from all leading credit
card issuers in the U.S. According to the commenter, these models
estimated that fees of $28 or less have relatively little deterrent
effect on late payments but that higher fees are a statistically
significant contributor to sustaining lower levels of delinquent
behavior. While the Board questioned the assumptions used to arrive at
the results in these modeling methods, the Board did accept that
increases in the amount of penalty fees can affect the frequency of
violations.\90\
---------------------------------------------------------------------------
\90\ Id. at 37541.
---------------------------------------------------------------------------
With respect to the higher $35 fee for repeat penalty fees that
occur during the same billing cycle or in one of the next
[[Page 18915]]
six billing cycles, the Board explained its belief that a higher
penalty fee amount is consistent with the deterrence factor set forth
in TILA 149(c)(2) insofar as--after a violation has occurred--the
amount of the fee increases to deter additional violations of the same
type that occur during the same billing cycle or in one of the next six
billing cycles.\91\ The Board also explained its belief that although
upfront disclosure of a penalty fee may be sufficient to deter some
consumers from engaging in certain conduct, other consumers may be
deterred by the imposition of the fee itself. For these consumers, the
Board explained its belief ``that imposition of a higher fee when
multiple violations occur will have a significant deterrent effect on
future violations.'' \92\ The Board specifically pointed to one study
of four million credit card statements, which found that a consumer who
incurs a late payment fee is 40 percent less likely to incur a late
payment fee during the next month compared to a consumer who was not
late, although this effect depreciates approximately 10 percent each
month.\93\ Although this study indicated that the imposition of a
penalty fee may cease to have a deterrent effect on future violations
after four months, the Board concluded that imposing an increased fee
for additional violations of the same type that occur during the same
billing cycle or in one of the next six billing cycles is consistent
with the intent of the CARD Act. The Board pointed to this study as
evidence indicating that, as a general matter, penalty fees may deter
future violations of the account terms.\94\
---------------------------------------------------------------------------
\91\ Id. at 37533.
\92\ Id.
\93\ Sumit Agarwal et al., Learning in the Credit Card Market
(April 24, 2013), https://ssrn.com/abstract=1091623 or https://dx.doi.org/10.2139/ssrn.1091623. The Board reviewed a 2008 version
of the paper.
\94\ 75 FR 37526, 37533 n.24 (June 29, 2010).
---------------------------------------------------------------------------
The Board's Consideration of Consumer Conduct. The Board also took
consumer conduct into account in adopting the higher $35 fee for repeat
penalty fees that occur during the same billing cycle or in one of the
next six billing cycles.\95\ The Board explained its belief that
``multiple violations during a relatively short period can be
associated with increased costs and credit risk and reflect a more
serious form of consumer conduct than a single violation.'' \96\ The
Board noted that, based on data submitted by a large credit card
issuer, consumers who pay late multiple times over a six-month period
generally present a significantly greater credit risk than consumers
who pay late a single time. The Board acknowledged that this data also
indicates that consumers who pay late two or more times over longer
periods (such as 12 or 24 months) are significantly riskier than
consumers who pay late a single time. However, the Board did not
explain how adding additional costs to these consumers would make them
less of a credit risk or consider whether adding costs to consumers who
are unable to pay could increase that risk.
---------------------------------------------------------------------------
\95\ The Board did not refer to consumer conduct in setting the
$25 safe harbor amount. See id. at 37527.
\96\ Id.
---------------------------------------------------------------------------
The Board stated its belief that, when evaluating the conduct of
consumers who have violated the terms or other requirements of an
account, it is consistent with other provisions of the CARD Act to
distinguish between those who repeat that conduct during the same
billing cycle or in one of the next six billing cycles and those who do
not.\97\ Specifically, the Board noted that (1) TILA section 171(b)(4)
provides that, if the APR that applies to a consumer's existing balance
is increased because the account is more than 60 days delinquent, the
increase must be terminated if the consumer makes the next six payments
on time; and (2) TILA section 148 provides that, when an APR is
increased based on the credit risk of the consumer or other factors,
the card issuer must review the account at least once every six months
to assess whether those factors have changed (including whether the
consumer's credit risk has declined).\98\ The Board did not, however,
explain why this is relevant to the question of penalty fees.
---------------------------------------------------------------------------
\97\ Id. at 37534.
\98\ Id.
---------------------------------------------------------------------------
The Bureau's Proposed Amendments to the Late Fee Safe Harbor Amounts
The safe harbor provisions in Sec. 1026.52(b)(1)(ii) currently
provide that a card issuer may impose a fee for violating the terms or
other requirements of an account if the dollar amount of the fee does
not exceed $30, as set forth in Sec. 1026.52(b)(1)(ii)(A), or $41 for
a violation of the same type that occurs during the same billing cycle
or one of the next six billing cycles, as set forth in Sec.
1026.52(b)(1)(ii)(B). In addition, Sec. 1026.52(b)(1)(ii)(C) provides
a special safe harbor that applies when a charge card account becomes
seriously delinquent. Under that provision, when a card issuer has not
received the required payment for two or more consecutive billing
cycles on a charge card account that requires payment of outstanding
balances in full at the end of each billing cycle, the issuer may
impose a late payment fee that does not exceed 3 percent of the
delinquent balance.
The Bureau proposes to amend Sec. 1026.52(b)(1)(ii) to provide
that a card issuer may impose a fee for a late payment on an account
under the safe harbor if the dollar amount of the fee does not exceed
$8.\99\ The Bureau is further proposing to amend Sec.
1026.52(b)(1)(ii) to provide that other than a fee for a late payment,
a card issuer may impose a fee for violating the terms or other
requirements of an account if the dollar amount of the fee does not
exceed the safe harbor amounts in Sec. 1026.52(b)(1)(ii)(A), or (B),
as applicable. As such, the proposed $8 safe harbor amount for late
fees would be a single fee amount; it would apply regardless of whether
the fee is imposed for a first or subsequent violation. However, for
all other penalty fees, card issuers could still charge amounts not
exceeding the amounts in Sec. 1026.52(b)(1)(ii)(A) and (B).
---------------------------------------------------------------------------
\99\ As discussed in more detail below, there is one proposed
exception related to charge card accounts as described in current
Sec. 1026.52(b)(1)(ii)(C).
---------------------------------------------------------------------------
In addition, under the proposal, charge card issuers could still
impose a fee pursuant to Sec. 1026.52(b)(1)(ii)(C) when a charge card
account becomes seriously delinquent as defined in the rule. The Bureau
recognizes that the fee described in Sec. 1026.52(b)(1)(ii)(C) is a
form of late fee but, for the reasons discussed below, is not proposing
to lower the safe harbor amount under this special provision for charge
cards. However, as discussed in the section-by-section analysis of
Sec. 1026.52(b)(1)(ii)(C) below, the Bureau proposes to revise this
provision for clarity to provide that a card issuer may impose a fee
not exceeding 3 percent of the delinquent balance on a charge card
account that requires payment of outstanding balances in full at the
end of each billing cycle if the card issuer has not received the
required payment for two or more consecutive billing cycles,
notwithstanding the safe harbor late fee amount in proposed Sec.
1026.52(b)(1)(ii). The Bureau emphasizes that the proposed $8 safe
harbor late fee amount in proposed Sec. 1026.52(b)(1)(ii) would still
apply to fees imposed on a charge card account for late payments not
meeting the description in Sec. 1026.52(b)(1)(ii)(C).
After analyzing available evidence and considering the applicable
statutory factors, the Bureau preliminarily determines that a late fee
amount of $8 for the first and subsequent late payments is presumed to
be reasonable
[[Page 18916]]
and proportional to the late payment violation to which the fee
relates.
The Bureau's Analysis of Data and Consideration of Statutory Factors
Costs. The Bureau has analyzed the Y-14 data and other information
in considering the factor of the costs of a late payment violation to
the card issuer. Based on that analysis, the Bureau has preliminarily
determined that a late fee safe harbor amount of $8 for the first and
subsequent violations would cover most issuers' costs from late
payments while providing card issuers with compliance certainty and
administrative simplicity and, therefore, reduce their compliance costs
and burden. The Bureau requests comments on this preliminary
determination, data used, or any alternatives to either.
In considering the costs of late payments to card issuers, the
Bureau has taken into account only those (estimated) costs that card
issuers are permitted to take into account for purposes of determining
the amount of a late fee under the cost analysis provisions in Sec.
1026.52(b)(1)(i) and related commentary, including the proposed
clarification to comment 52(b)(1)(i)-2.i. As provided in the commentary
to Sec. 1026.52(b)(1)(i), such costs for late fees (1) include the
costs associated with the collection of late payments, such as the
costs associated with notifying consumers of delinquencies and
resolving delinquencies (including the establishment of workout and
temporary hardship arrangements); and (2) exclude losses and associated
costs (including the cost of holding reserves against potential losses
and the cost of funding delinquent accounts). As discussed in the
section-by-section analysis of Sec. 1026.52(b)(1)(i), the Bureau
proposes to clarify that costs for purposes of the cost analysis
provisions in Sec. 1026.52(b)(1)(i) for determining penalty fee
amounts do not include any collection costs that are incurred after an
account is charged off pursuant to loan loss provisions. The Bureau
preliminarily finds that considering pre-charge-off collection costs as
the ``costs'' of a late payment is consistent with Congress' intent to:
(1) allow card issuers generally to use late fees to pass on to
consumers the costs issuers incur to collect late payments or missed
payments; (2) ensure that those costs are spread among consumers and
that no individual consumer bears an unreasonable or disproportionate
share; and (3) prevent card issuers from recovering losses and
associated costs through late fees rather than through upfront rates.
As discussed in part III.C, the reported collection costs in the Y-
14 data (1) include costs incurred to collect problem credits that
includes the total collection cost of delinquent, recovery, and
bankrupt accounts, and (2) do not include losses and associated costs.
The Bureau concludes that the collection costs data in the Y-14 are
consistent with the costs included for the cost analysis provisions in
Sec. 1026.52(b)(1)(i) except that the collection costs in the Y-14
data include post-charge-off collection costs. As discussed in part
III.C, the Bureau has estimated that approximately 75 percent of
collection costs incurred by card issuers are incurred pre-charge-off.
Thus, as discussed in part III.C, the Bureau's estimate of pre-charge-
off collection costs is based on only 75 percent of the collection
costs in the Y-14 data for purposes of its analysis related to the
proposed changes to the safe harbor thresholds in Sec.
1026.52(b)(1)(ii), as discussed in more detail below.
In developing the proposed late fee safe harbor amount, the Bureau
carefully considered several sources of data and other information to
determine the amount that would cover a reasonable and proportional
amount of card issuers' pre-charge-off collection costs. As discussed
in part III.C, and described in detail below, the Bureau reviewed and
analyzed major issuers' late fee income, collection costs, late fee
amounts, and required payment information contained in the Y-14 data, a
source that was not available when the Board set the initial safe
harbor amounts in 2010. That analysis indicates that late fees
generally generate revenue that is multiple times higher than issuers'
collection costs. The Bureau also reviewed issuers' stated late fee
amounts in card agreements that issuers are required by the CARD Act to
submit quarterly to the Bureau. Based on this data, the Bureau expects
that even if late fees were reduced to one-fifth of current levels
(implying late fees of $8 or less), most issuers would recover pre-
charge-off collection costs.
To estimate the fee income to collection cost ratio, the Bureau
used the late fee income data and 75 percent of the collection costs
contained in the Y-14 data (referred to below as ``estimated pre-
charge-off collection costs'').\100\ Using the Y-14 data, the Bureau
analyzed monthly late fee income and estimated pre-charge-off
collection costs for the consumer segments of major issuers' credit
card portfolios, namely the consumer general purpose and private label
portfolios. For the 16 consumer portfolios with continuous cost data
for the first three quarters of 2022 (adding up to about 73 percent of
total consumer credit card balances at the end of September 2022),
total late fee income in the first three quarters added up to $4.46
billion, while total collection costs added up to $1.19 billion with
pre-charge-off collection costs estimated to be $896 million.
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\100\ For additional information and data related to this late
fee income to collection cost ratio, see Bureau of Consumer Fin.
Prot., Credit Card Late Fees: Revenue and Collection Costs at Large
Bank Holding Companies, (Jan. 2023) (Revenue-Cost Report), https://files.consumerfinance.gov/f/documents/cfpb_credit-card-late-fees-revenue-and-collection-costs-at-large-bank-holding-companies_2023-01.pdf.
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In reviewing the monthly data, the Bureau observed that late
payments exhibit seasonal patterns. The Bureau also considered that
there may be a delay between when a late fee was assessed and when the
issuer incurs substantial collection costs associated with the account.
For these reasons, the Bureau compared each month's late fee income for
a particular portfolio to the portfolio's average estimated pre-charge-
off collection costs for that month, where that estimate was based on
estimated pre-charge-off collection costs that occurred two through six
months later.\101\ The Bureau developed monthly estimates of this late
fee income-to-cost ratio for each year from 2013 up to early 2022. The
analysis showed that an average of this ratio across issuers and market
segments, weighted by the number of accounts reported in the Y-14 data,
has been fairly stable since early 2019 (and was higher before 2019).
As shown in Figure 1 below, late fee income has always been higher than
three times subsequent estimated pre-charge-off collection costs, and
more than four times as high in all but five pandemic months (May 2020
and February-May 2021, coinciding with pandemic stimulus payments, when
there was a reduction in late fee income without a corresponding
decline in average collection costs in subsequent months). Since August
2021, late fee
[[Page 18917]]
income has exceeded the relevant estimated pre-charge-off costs more
than fivefold, which resembles the period before the pandemic.
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\101\ For example, if an issuer were to report late fee income
of $15 million in January for a portfolio and total collection costs
for that portfolio of $20 million in March through July, the Bureau
estimated $15 million in pre-charge-off collection costs in March
through July and calculated an average monthly collection cost of $3
million for purposes of this analysis--resulting in a ratio of late
fee income of $15 million to collection cost of $3 million for this
portfolio for the month of January. The Bureau found that its
preliminary findings based on the weighted average of this ratio
across issuers and market segments as discussed in the analysis
below are robust to shifting, expanding, or shortening the time
period of delay in collection costs as they relate to late fee
income.
[GRAPHIC] [TIFF OMITTED] TP29MR23.067
Based on this analysis, the Bureau expects that the average issuer
would recover pre-charge-off collection costs even if late fees were
reduced to one-fifth of their current level. All but one issuer among
those in the Y-14 data (representing the majority of balances in the
credit card market) disclosed late fees ``up to'' $40 or $41 (the
current maximum safe harbor amount) in their most recent card
agreements submitted to the Bureau. Given the finding that, in the most
recent data, late fee income is greater than five times estimated pre-
charge-off costs, the Bureau expects that an $8 late fee would still
recover the average issuer's pre-charge-off collection costs, as that
fee represents one-fifth of the maximum late fee amount, which is
necessarily greater than average fee income per late payment.
The Bureau also notes that average late fees are lower than the
disclosed maximum late fees. As discussed in part II.D, in 2019, the
average late fee charged by issuers in the Y-14+ data was $31.\102\
Reasoning that the average late fees are lower than the current maximum
safe harbor of $41 and yet still generate late fee income that is again
more than five times the ensuing (estimated) pre-charge-off collection
costs since August 2021, the Bureau preliminarily concludes that $8 is
likely to recover the average issuer's pre-charge-off collection costs.
Because the proposed safe harbor, if adopted, could be used by card
issuers generally, and is not tailored to any particular type of
issuers or consumers, the Bureau preliminarily finds that is
appropriate to consider average issuers' pre-charge-off collection
costs in determining the late fee safe harbor amount. The Bureau also
preliminarily finds that establishing a generally applicable safe
harbor will facilitate compliance by issuers and increase consistency
and predictability for consumers.
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\102\ Late Fee Report, at 6. To gain further insights into how
the average late fee compares to the disclosed maximum late fee in
the agreements, the Bureau analyzed a 40 percent random subsample of
tradelines of Y-14 data from 2019 to observe the incidence of late
fees and the fee amounts assessed. The Bureau observed that the
average late fees have been lower than the amounts in the card
agreements for several reasons, including (1) some late fees did not
occur within six months of an earlier late fee and thus are set at
the lower safe harbor amount; and (2) some late fees reflect the
current limitation in Sec. 1026.52(b)(2)(i)(A) and related
commentary that prohibits late fees from exceeding the minimum
payment amount that is due. The Bureau also observed that some late
fees are imposed but later reversed and that some late fees are
charged to accounts that never make another payment.
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The Bureau acknowledges that not all issuers in the Y-14 data face
the average pre-charge-off collection costs. By using estimates of pre-
charge-off collection costs per paid incident using the Y-14 data from
September 2021 to August 2022, the Bureau estimates that fewer than
four of the 12 card issuers in the Y-14 data have estimated pre-charge-
off collection costs that are significantly higher than one-fifth of
their late fee income. For these issuers, the proposed $8 safe harbor
amount may not have been enough to fully recover estimated pre-charge-
off collection costs, such that the benefits of using the cost analysis
provisions may outweigh the administrative simplicity of using the safe
harbor. While the most recent data suggest that the proposed safe
harbor amount would cover pre-charge-off collection costs for most
issuers, the Bureau recognizes that some issuers may choose to
determine the late fee amount using the cost analysis provisions in
Sec. 1026.52(b)(1)(i), rather than using the proposed $8 safe harbor
amount, if $8 is insufficient to recover their pre-charge-off
collection costs.\103\
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\103\ The Bureau estimates from the same data that a $5 safe
harbor amount would drive half of the market represented in the Y-14
data to use the cost analysis provisions in Sec. 1026.52(b)(1)(i)
to determine the late fee amount and that a $4 safe harbor amount
would do so for eight issuers holding around three-quarters of the
represented issuers' outstanding balances.
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The Bureau recognizes that the analysis above is based on data from
the largest issuers, and may not be representative of smaller issuers,
who do not report to the Y-14 collection. As discussed above, the
Bureau did not receive specific cost data in response to its request in
the ANPR for data on card issuers' pre-charge-off collection costs,
including data on pre-charge-off collection costs incurred by smaller
issuers. Although the Bureau does not have data equivalent to the Y-14
data for smaller issuers' pre-charge-off collection costs, it has no
reason to expect that smaller issuers exhibit substantially higher pre-
charge-off collection costs than larger issuers. On the other hand, the
Bureau expects that the proposed $8 amount would have a proportionately
smaller impact on smaller issuers' late fee income, due to smaller
issuers' having lower late fee amounts. In 2020, the average late fee
for issuers in the Y-14+ data was $31.\104\ The Bureau collects card
agreements from many more smaller issuers than issuers for which the
[[Page 18918]]
Bureau has financial data. Based on a review of those agreements from
over 500 credit card issuers, each outside the top 20 by outstanding
credit card loans and having more than 10,000 credit card accounts, the
Bureau established that smaller issuers charged smaller late fees in
2020 than larger issuers, with a modal maximum disclosed late fee for
smaller issuers of $25.\105\ The Bureau solicits comment on this
analysis and the potential impact on smaller issuers of the proposed $8
safe harbor amount, including whether smaller issuers can provide data
or evidence related to the cost of collecting late payments. The Bureau
also solicits comment on whether the pre-charge-off collection costs
for smaller issuers differ from such costs for larger issuers, and if
so, how the costs differ.
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\104\ 2021 Report, at 55.
\105\ Late Fee Report, at 14.
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The Bureau notes that the analysis based on the Y-14 data discussed
above does not take into account any potential changes in consumer
behavior in response to the proposed change in the late fee safe harbor
amount. In particular, the discussion does not take into account the
possibility that reduced late fees will lead to more late payments.
However, as discussed below, the Bureau's analysis of Y-14 data and
other information suggests that the proposed $8 safe harbor amount for
the first and subsequent late payments would still have a deterrent
effect on late payments. The Bureau also expects that any increase in
the frequency of late payments, as a result of the reduced late fee
safe harbor amount, would increase both fee income and collection
costs. Even if more consumers pay late because of the decreased amount,
the increased number of late payments are unlikely to be more costly,
on average, to administer and collect than the current number of late
payments. Therefore, the Bureau expects that collection costs to card
issuers would not increase by more than fee income. The Bureau seeks
comment specifically as to this analysis, including data or evidence as
to whether reduced fees would affect the frequency of late payments or
collection costs.
The Bureau does not expect the proposal to cap late fees at 25
percent of the required minimum periodic payment due, discussed in the
section-by-section analysis of Sec. 1026.52(b)(2)(i), to materially
change the late fee income issuers can collect overall when the issuer
is using the proposed $8 safe harbor amount. The cap would require
issuers to impose late fees lower than the proposed $8 safe harbor
amount only when the minimum periodic payment due is $32 or less.
Nonetheless, as discussed in more detail in the section-by-section
analysis of Sec. 1026.52(b)(2)(i), the instances where 25 percent of
the minimum payment may be less than the proposed $8 safe harbor do not
appear to be frequent. The Y-14 data from October 2021 to September
2022 shows that for those months in which an account was late, only 7.7
percent of those accounts had a minimum payment of less than $32.\106\
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\106\ For more information on the distribution of minimum
payments for late accounts in the Y-14 data, see Figure 3 and
related discussion in the section-by-section analysis of Sec.
1026.52(b)(2)(i). However, issuers could adjust how they determine
minimum payments such that the 25 percent limitation on late fees
would only affect those accounts with balances of less than $32,
whose minimum payment will always be less than $32 as the minimum
payment can never exceed the statement balance. Based on the Y-14
data between October 2021 and September 2022, for those months in
which an account was late, only 2.1 percent of accounts had balances
of less than $32.
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The Bureau notes that the Y-14 data discussed above on which the
Bureau relied in considering card issuers' pre-charge-off collection
costs are far richer and more extensive than the data on which the
Board relied when it established the penalty fee safe harbor amounts in
its 2010 Final Rule. This is due in large part to the Bureau's access
to nearly a decade's worth of Y-14 data--a data source that did not
exist when the Board was developing its rule. In contrast, as discussed
above, the data and other information on which the Board relied was
limited, as systematic reporting of card issuers' collection costs was
not available and relatively few commenters on the Board's proposal
provided any data on collection costs in response to the Board's
request for such data, with some providing data that the Board found
unreliable.
Similarly, the Bureau did not receive specific cost data in
response to its request in the ANPR for data on card issuers' pre-
charge-off collection costs, including costs associated with notifying
(other than through periodic statements) cardholders of delinquencies
and resolving delinquencies (including the establishment of workout and
temporary hardship arrangements) prior to charge-off, including
payments to third-party debt collectors. In general, card issuers and
their trade groups provided information on card issuers' late fee
pricing structures, individually or industry-wide, and further provided
high-level explanations for those pricing structures, including
recovering collection costs, risk management, and the effects of the
safe harbor provisions themselves. In a joint comment, for example,
several trade groups asserted that the similarity of late fees across
issuers is a predictable response to the benefits of legal certainty
granted under the law. These trade groups further asserted that the
safe harbor allows issuers to recover some (though not all) of the
costs associated with late payments and encourages on[hyphen]time
payments, while also providing issuers with compliance certainty. These
trade groups, however, did not provide data on issuers' pre-charge-off
collection costs. Neither did any other commenters.
One credit union trade group provided estimates of the hourly labor
costs of collecting late payments, based on the average salary of a
collections agent that the commenter obtained from a publicly available
source. This credit union trade group commenter did not provide
estimates of what portions of those hourly labor costs are pre-charge-
off and post-charge-off, nor did it provide the number of hours of
labor that would be needed per late payment. As a result, it was not
possible to determine the late fee cost per account based on the data
provided.
The Bureau also notes the current safe harbor amounts of $30 and
$41 are significantly higher than the pre-charge-off collection costs
as shown in the Bureau's analysis. Moreover, as discussed in part II.E,
most large issuers have taken advantage of the increased safe harbors
as adjusted for inflation by increasing their fee amounts.\107\
Eighteen of the top 20 issuers by outstanding balances contracted for a
maximum late fee at or within 10 percent of the higher safe harbor
amount in 2020.\108\ Although card issuers generally do not impose late
fees at the highest contracted-for amount, issuers have steadily been
charging consumers more in credit card late fees each year,\109\ with
the average late fee imposed increasing in amount from $23 at the end
of 2010 to $31 in 2019.\110\
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\107\ Late Fee Report, at 14.
\108\ Id.
\109\ As noted above, the one exception to this trend is a brief
period during the pandemic when there was a drop in card issuers'
late fee income corresponding with government stimulus payments.
\110\ Late Fee Report, at 6. See also 2013 Report, at 23.
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The Bureau is thus concerned that credit card late fee amounts
imposed pursuant to the current safe harbor amounts--which, as adjusted
for inflation, were established in 2010 based on limited data available
at the time--far exceed card issuers' actual pre-charge-off collection
costs resulting from late payment violations and thus
[[Page 18919]]
are not reasonable and proportional. In considering the costs of such
violations to issuers, the Bureau has analyzed available data sources
and other information, including Y-14 data extending back several
years, as discussed above. The Bureau recognizes that the costs of
collecting late payments will vary from issuer to issuer and that a
late fee safe harbor amount of $8 may not cover all of those costs for
all issuers. The Bureau notes, however, that TILA section 149(e)
authorizes the Bureau to issue rules to provide, for any penalty fee or
charge, a safe harbor amount that is presumed to be reasonable and
proportional to the omission or violation to which the fee or charge
relates.
The Bureau also considered cost as one of the factors in making
that determination. The Act, however, does not require the Bureau to
establish a late fee safe harbor amount that covers the costs for all
issuers or the entire costs of the omission or violation in all
instances. Moreover, the Bureau is concerned that setting a higher safe
harbor amount for late fees in order to cover the pre-charge-off
collection costs of all card issuers could result in an amount that
exceeds the costs for most card issuers. As discussed in part II.E, the
Bureau is concerned that card issuers may have a disincentive to charge
a lower fee amount than the safe harbor amount, even if their average
collection costs are less than the safe harbor amount, given the
industry's reliance on late fees as a source of revenue and that many
consumers may not shop for credit cards based on the amount of the late
fee.
In addition, because the Bureau anticipates that most card issuers
would use the proposed $8 late fee safe harbor threshold amount, the
proposed safe harbor provisions in Sec. 1026.52(b)(1)(ii) would
continue to save costs for most card issuers, by continuing to save
them the administrative burden and complexity of using the cost
analysis provisions in Sec. 1026.52(b)(1)(i) to determine the late fee
amount. As discussed above, in considering the appropriate safe harbor
amount for late fees, the Bureau is guided by the factors in TILA
section 149(c), which provides that the Bureau can consider such other
factors that the Bureau deems necessary or appropriate. The Bureau
preliminarily finds that it is both necessary and appropriate, when
considering the portion of card issuers' pre-charge-off costs that a
late fee safe harbor amount would cover, to take into account the cost
savings from compliance certainty and administrative simplicity
accorded by a safe harbor. The Bureau also preliminarily finds that a
late fee safe harbor amount of $8 for the first and subsequent late
payments strikes the appropriate balance of these considerations. The
Bureau seeks comment on all aspects of the analysis above, including
data or other information to support why the $8 amount is or is not
sufficient to cover card issuers' pre-charge-off costs. The Bureau also
seeks specific comment on whether the data on pre-charge-off collection
costs discussed above accurately reflect the costs that card issuers
incur as the result of a late payment violation before charge-off,
including data or other information indicating whether the Bureau's
analysis over- or underestimates such costs.
The Bureau further notes that if the proposed $8 safe harbor amount
is not sufficient to cover a particular card issuer's pre-charge-off
costs in collecting late payments, the card issuer can charge a higher
amount, if consistent with the cost analysis provisions in Sec.
1026.52(b)(1)(i) and the requirements in Sec. 1026.52(b)(2). Card
issuers also may undertake efforts to reduce collection costs or use
interest rates or other charges to recover some of the costs of
collecting late payments. Building those costs into upfront rates would
provide consumers greater transparency regarding the cost of using
their credit card accounts.
For the foregoing reasons, the Bureau preliminarily concludes that
a late fee of $8 for the first and subsequent violations is appropriate
to cover pre-charge-off costs for card issuers on average while
providing issuers compliance certainty and administrative simplicity.
Deterrence. As noted above, in the 2010 Final Rule, the Board did
not expressly discuss how it took deterrence into account in setting
the $25 penalty fee amount; instead, the Board limited its discussion
of that factor to the role it played in the Board's decision to set a
higher safe harbor amount for any additional violation of the same type
that occurs during the same billing cycle or in one of the next six
billing cycles.
In developing this proposal, the Bureau analyzed available data to
consider the extent to which lower late fees for both the first and
subsequent late payments could potentially lessen deterrence. The
Bureau recognizes that late fees are a cost to consumers of paying
late, and a lower late fee amount for the first or subsequent late
payments might cause more consumers to pay late. The Bureau also
recognizes that it does not have direct evidence on what consumers
would do in response to a fee reduction similar to those contained in
the proposal, and market participants did not provide data on
deterrence in response to the Bureau's ANPR. The Bureau notes, however,
that the Y-14 data and other information that has become available
since the Board issued its 2010 Final Rule support the proposed
reduction.
As discussed in more detail below, the Bureau preliminarily finds
that this available evidence suggests that the proposed $8 safe harbor
amount would still have a deterrent effect on late payments. Even if
the proposed $8 safe harbor would increase the frequency of late
payments by some percentage, the Bureau has preliminarily determined
that some cardholders may benefit from the proposed $8 safe harbor
threshold amount in terms of a greater ability to repay revolving debt.
The Bureau also notes that card issuers have methods other than higher
late fees (1) to deter late payment behavior; and (2) to facilitate
timely payments, for example, automatic payment and notification within
a certain number of days (e.g., five days) prior to the due date that
the payment is coming due.
In making its preliminary determination that lowering late fee
amounts to the proposed $8 safe harbor amount would still have a
deterrent effect on late payments, as discussed in more detail below,
the Bureau considered (1) a comparison of the proposed $8 late payment
safe harbor amount to minimum payment amounts on accounts in the Y-14
data; and (2) available empirical evidence on the effects of credit
card late fees on the prevalence of late payments.
The Bureau notes that whether a consumer is late in making a
required payment depends in part on the consequences of paying late,
including both penalty fees for late payments and other consequences
such as increased interest charges and potential credit reporting
consequences (as discussed in part II.G and in more detail below). From
the point of view of a rational consumer faced with the decision of
whether to make a minimum balance payment on time or to put off the
payment until later, the decision represents a tradeoff weighing the
value to the consumer of retaining the money for longer against the
total costs of paying late. For the median minimum payment amount of
approximately $100 for accounts that paid late in the Y-14 data from
October 2021 through September 2022, the costs of paying late are quite
steep both under current late payment fee amounts and under the
[[Page 18920]]
proposed $8 safe harbor amount.\111\ For example, a consumer who
effectively borrows a minimum payment amount of $100 until the next due
date (that is, who makes a payment one month late) and pays a $8 late
fee would be incurring an effective APR of 96 percent even ignoring
other consequences. In addition, a consumer who effectively borrows a
minimum payment amount of $40 for 10 days (past due) and pays a $8 late
fee would be incurring an effective APR of 730 percent. As the median
minimum due was $39 for all cardholders between October 2021 and
September 2022 in the Y-14 data,\112\ and around half of late payers
made a payment in less than 10 days past the due date, the effective
APR could be higher than 730 percent for some consumers. Thus, the
Bureau has preliminarily determined that the proposed $8 late fee safe
harbor amount is still a powerful deterrent to those consumers who pay
attention to financial penalties.
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\111\ For more information about the distribution of minimum
payment amounts for late accounts in the Y-14 data, see Figure 3 and
related discussion in the section-by-section analysis of Sec.
1026.52(b)(2)(i).
\112\ For purposes of the calculations of the distribution of
the minimum payment amounts in the Y-14 data, the calculations do
not include account-months where a late fee was charged but the
minimum due was reported to be $0.
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The Bureau also has considered available empirical evidence on the
effects of credit card late fees on the prevalence of late payments. In
particular, the Bureau considered (1) a 2022 paper analyzing the effect
of the reduction of late fee amounts that became effective as a result
of the CARD Act in 2010; (2) analysis by the Bureau using Y-14 data of
how the prevalence of late payments is affected by increases in late
fee amounts during the six months following a violation; and (3) other
empirical investigations into the correlates of late fee amounts and
late fee incidence as discussed below.
In analyzing the available data, the Bureau notes a 2022 paper by
Grodzicki et al., containing an empirical analysis that concluded that
a decrease in the late fee amount stemming from the Board's 2010 Final
Rule raised the likelihood of a cardholder paying late.\113\ While the
Bureau recognizes that this paper suggests that consumers may engage in
more late payments when they are less costly to consumers, for the
reasons discussed below, the Bureau does not consider this robust
evidence that the proposed $8 safe harbor late fee amount would not
have a deterrent effect. The Bureau also notes the paper focused on the
late fee variations resulting from the limitations on penalty fee
amounts in the Board's 2010 Final Rule and thus could be confounded by
other market changes coinciding with the rule going into effect. In
particular, the late fee provisions in the Board's 2010 Final Rule were
implemented in August 2010, as the U.S. economy was still dealing with
the aftermath of the Great Recession,\114\ and thus it was difficult to
attribute consumer finance statistical trends to particular events.
Moreover, the Board's 2010 Final Rule affected all consumers and all
issuers, so there was no suitable control group of consumers that were
charged the same amount of late fees before and after the
implementation of the Board's 2010 Final Rule. Thus, the 2022 paper
compared consumer behavior in the year before and the year after August
2010, and the causal attribution of an increase in late payments to a
reduction of the late fee amount is hard to prove due to the general
economic uncertainty around that time.
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\113\ Daniel Grodzicki, et al., Consumer Demand for Credit Card
Services, Journal of Financial Services Research (Apr. 25, 2022),
https://link.springer.com/article/10.1007/s10693-022-00381-4.
\114\ The Great Recession began in the fourth quarter of 2007
and ended in the second quarter of 2009. See generally Nat'l Bureau
of Econ. Res., Business Cycle Dating Committee, (Sept. 20, 2010),
https://www.nber.org/cycles/sept2010.html.
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In developing this proposal, the Bureau analyzed Y-14 data from
2019, where the variation in late fees does not correspond to other big
changes or differences that might plausibly affect late payment. As
this proposal discusses, the current rule sets a higher late fee safe
harbor amount for instances where another late payment occurred over
the course of the preceding six billing cycles. The Bureau conducted
statistical analysis to investigate whether the lower late fee amount
in month seven leads to a distinct rise in late payments (Y-14 seventh-
month analysis). Specifically, the Bureau estimated whether there are
discontinuous jumps in late payments in the seventh month after the
last late payment.\115\ This analysis focused on these potential jumps
to isolate the potential impact that the lower late fee that would
apply in month seven might have on late payment rates, given that month
seven is generally comparable to month six other than the lower late
fee amount. In a random subsample from account-level data available in
2019 from the Y-14 data, this statistical analysis did not support that
the lower late fees in month seven have an effect on the late payment
rate, at conventional confidence levels. In addition, as a separate
observation, the Bureau observed that for consumers that incurred a
higher fee for a late payment during the six months after the initial
late payment, the payment of that higher late fee did not lead to a
discernibly lower chance of late payment for a third time in the future
than for those consumers whose second late fee was lower because they
paid late seven or more months after their first late payment.
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\115\ The Bureau observed in the Y-14 data that, consistent with
the safe harbor provisions of the current rule, consumers who paid
late again within the six months after a late payment paid higher
late fees during those six months than they paid after the initial
late fee.
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The Bureau acknowledges that the variation in late payments in the
Y-14 seventh-month analysis discussed above is not the same as the
changes that would result from the proposed rule. Nonetheless, this
evidence suggests the prevalence of late payments is not highly
sensitive to the level of late fees at the current order of magnitude.
An advantage of the Y-14 seventh-month analysis is that it avoids
confounding factors that often are found in other studies of late fees,
including the 2022 paper by Grodzicki et al., discussed above. Studies
that compare behaviors of consumers facing higher or lower fees (if
late) with consumers in a comparison group are often fraught with
multiple confounding factors that may also vary across time periods,
issuers, products, or consumer behavior in each group.
The preliminary finding from the Y-14 seventh-month analysis
described above is still contingent upon the fact that some consumers
understand that their issuers charge lower late fees starting the
seventh month after an initial violation. The Bureau recognizes that
the higher late fees for subsequent late payments within the next six
billing cycles might be more of a deterrent if consumers understand
them better in 2022 than they did in 2019, but the Bureau has no
evidence to indicate that is the case. However, this analysis is not
dependent on all issuers charging the lower late fee safe harbor amount
more than six months after a late payment nor the higher late fee safe
harbor amount within the six billing cycles. As long as some issuers
made use of the higher safe harbor, and the analysis described above
shows they did, the Bureau should still have been able to detect an
increase in the deterrent effect of their fee structure.
The Bureau also notes that because the Y-14 seventh-month analysis
discussed above focused on a potential discrete jump in late payments
more than six months after a preceding late payment, it also allowed
for late payments to trend down as more time passed after a late
payment. As described above, the Bureau did not see
[[Page 18921]]
the lower late fee amount that could be charged in month seven change
this downward trend.
The Bureau also has preliminarily determined that other publicly
available studies on late fees suggest that the proposed $8 safe harbor
amount would still have a deterrent effect on late payments. Empirical
investigations into the correlates of late fee amounts \116\ and late
fee incidence \117\ noted that late fee payment can often be avoided by
small and relatively costless changes in behavior. This suggests that
the lower proposed $8 late fee safe harbor amount would still be higher
than the costs of making a timely payment. The Bureau has preliminarily
determined that the triggers that make cardholders avoid the current
prevailing late fees also would make cardholders avoid a $8 late
fee.\118\
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\116\ Nadia Massoud, et al., The Cost of Being Late? The Case of
Credit Card Penalty Fees, 7 Journal of Financial Stability, at 49-59
(2011).
\117\ Sumit Agarwal, et al., The Age of Reason: Financial
Decisions Over the Life Cycle and Implications for Regulation, 2
Brookings Papers on Economic Activity, at 51-117 (2009).
\118\ The Bureau notes that several industry commenters on the
ANPR discussed a survey conducted by Argus Advisory, a TransUnion
Company, in 2010. The commenters indicated that this survey
demonstrates that there is a threshold which late fees must reach in
order to encourage cardholders to pay on time. The commenters
indicated that this survey shows that to deter a majority of
cardholders from making a late payment, a fee of $40 to $46 would be
required. The Bureau acknowledges that an order of magnitude higher
fee amounts is likely to deter more consumers from paying late but
finds that questions to consumers on hypothetical late payment
amounts are less informative about the effects of late payment fees
in practice. The Board also discussed this survey when it adopted
the 2010 Final Rule and did not believe that it would be appropriate
to give significant weight to the results of the survey. The Board
noted: ``Although surveys of this type are sometimes used to gauge
the prices consumers may be willing to pay for retail products, the
Board understands that their accuracy is limited even in that
context. Furthermore, the Board is not aware of this type of survey
being used to measure the deterrent effect of fees. Accordingly, the
Board does not believe that it would be appropriate to give
significant weight to the results of this survey.'' 75 FR 37526,
37541 n. 43 (June 29, 2010).
Several industry commenters also argued that late fees are often
used in other industries, and similar to the card market, higher
fees are more effective at encouraging compliance with due dates.
The commenters pointed to studies in the video rental market that
showed that payment of a late fee decreases the likelihood of a late
return the next month by nearly 9 percent, and the deterrent effect
of late fees increases with the size of the penalty. Haselhuhn et
al., The Impact of Personal Experience on Behavior: Evidence from
Video-Rental Fines, Management Science, vol. 58, No. 1 (2012). These
commenters also pointed to another study on the video rental market
that found that (1) paying a late fee reduces the likelihood that
the next return will be late by 19 percent; (2) these effects
decrease the farther out from the initial payment the customer gets.
Fishman and Pope, Punishment-Induced Deterrence: Evidence from the
Video-Rental Market, Univ. of Cal., Berkeley, Dept. of Econ. (2006).
The Bureau recognizes that the results of these studies are in line
with the broader literature (see also supra note 93) indicating that
consumers learn by trial and error of personal experience, but the
Bureau finds that these studies are less useful to extrapolate how
many more cardholders would make a late payment on U.S. credit cards
if the late fee safe harbor amount were lowered.
---------------------------------------------------------------------------
As discussed above, in support of applying higher late fee safe
harbor amounts for the following six billing cycles after a late
payment, the Board in adopting its 2010 Final Rule pointed to a 2008
study by Agarwal et al., of four million credit card statements, which
found that a consumer who incurs a late payment fee is 40 percent less
likely to incur a late payment fee during the next month, although this
effect depreciates approximately 10 percent each month.\119\
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\119\ See Agarwal et al., supra note 93.
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The Bureau has consulted the last available revision of the cited
working paper by Agarwal et al., from 2013, and has preliminarily
determined that the study is of limited relevance as to whether the
late fee amount impacts late payment incidence, for two reasons. First,
the study considers the months following any late fee and compares them
to months with no recent late payment. That comparison is not the same
as comparing to months in which a payment was late, but a lower late
fee (or even a $0 late fee) was charged. Second, even if the study had
compared to months where a payment was missed but no late fee was
charged, that comparison still would not be relevant to the proposal in
that the proposal would reduce the safe harbor amount to $8, not
completely eliminate the late fee.
The Bureau notes that the Y-14 seventh-month analysis discussed
above shows that in the surrounding months reoffending rates trend down
with each month after the last late payment. The Bureau's Y-14 seventh-
month analysis, however, does not show a jump in late payment rates in
month seven after the last late fee, which suggests that the higher
late fee amount during the prior six months is not contributing to this
downward trend.
The Bureau also notes that the 2013 study by Agarwal et al.,
discussed above did not separate the effects of the late fee itself
from other possible consequences of a late payment, such as additional
finance charges, a lost grace period, penalty rates, and reporting of
the late payment to a credit bureau which could affect the consumer's
credit score. Given these other consequences of a late payment as
discussed in more detail below and in part II.G, it is not clear that
the proposal's lower late fee safe harbor amount would meaningfully
affect the decreased chance that consumers will pay late again after an
initial late payment in ways similar to those established in this 2013
study.
As discussed above, in adopting the safe harbor amounts in its 2010
Final Rule, the Board also considered the limitations that the United
Kingdom's OFT placed on credit card default charges in 2006. The Bureau
notes that it is not aware of evidence suggesting that the [pound]12
($21 on the day of the rule, $13.40 in November 2022) limit the OFT
imposed on default charges (including late fees) in 2006 meaningfully
increased late payments in the United Kingdom (U.K.). The OFT ruled on
April 5, 2006, that it would presume default charges higher than
[pound]12 unfair and challenge the company unless exceptional business
factors drove the decision for the company to charge higher fees. As
fees were routinely as high as [pound]25 ($43.75 on the day of the
rule) until that spring, this episode is the closest to what the Bureau
would foresee as the outcome to its proposal: a salient reduction in
late fees impacting the entire marketplace at once, letting both
issuers and cardholders learn and adapt to the lower later fees. The
Bureau solicits comment from the public for any relevant information on
the causal effects of this U.K. fee reform on missed or late payments
and longer delinquencies, especially ones leading to more costly
collections than before the reform.
For the reasons discussed above, the Bureau preliminarily finds
that the available evidence indicates that the proposed $8 safe harbor
amount for the first and subsequent late payments would still have a
deterrent effect on late payments, although that effect may be lessened
by the proposed change to some extent, and other factors may be more
relevant (or may become more relevant) towards creating deterrence.
Even if the proposed $8 safe harbor increases the frequency of late
payments by some percentage, for the reasons discussed below, the
Bureau has preliminarily determined that some cardholders may benefit
from the proposed $8 safe harbor threshold amount. As discussed above,
in considering the appropriate safe harbor amount for late fees, the
Bureau is guided by the factors in TILA section 149(c), which provides
that the Bureau can consider such other factors that the Bureau deems
necessary or appropriate. The Bureau preliminarily finds that it is
both necessary and appropriate when considering whether a late fee is
reasonable and proportional to take into account the possible impact of
lower
[[Page 18922]]
late fees on cardholders' repayment behavior and finances.
For the more constrained cardholders, like subprime borrowers, who
pay a disproportionate proportion of late fees, the current, higher
late fee may be impacting cardholder repayment conduct--i.e., the
higher late fee amount could have gone toward a payment on the account.
As discussed in part VII, the Bureau estimates that reducing the safe
harbor for late fees to $8 would likely reduce late fee revenue by
billions of dollars. While issuers may respond to this reduction in
revenue from late fees by adjusting interest rates or other card terms
to offset the lost income, the Bureau expects less than full offset,
with consumers gaining in total from reduced late fees. This expected
savings would benefit consumers. The money saved by cardholders on late
fees may go toward repayment. The 2022 paper by Grodzicki et al.,\120\
described above, with all the caveats noted there, found such a pattern
for subprime cardholders: A decrease in late fees after the
implementation of the CARD Act increased borrowing for prime borrowers
but triggered repayment for subprime cardholders.\121\ If this
prediction held true for the current proposed reform, it would imply
that lowering late fees may provide some benefits to subprime consumers
in terms of a greater ability to repay revolving debt. This effect
might also lower issuers' losses from delinquencies, as it could
subsequently reduce the likelihood and the severity of default in the
population most prone to default.\122\
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\120\ Supra note 113.
\121\ Although the paper found that lower late fees may cause
subprime cardholders to pay late more often, it also found that
lower late fees may cause subprime cardholders to make a larger
payment when they ultimately make the payment. This paper explained
that this latter effect on subprime cardholders might result from
the lower late fee amount lessening the need for subprime
cardholders to focus on avoiding late fees and instead allowing some
subprime cardholders to start to pay more attention to the high cost
of their revolving debt.
\122\ Even if lower late fees would decrease losses from
delinquencies, issuers may still prefer higher late fees to maximize
profits. As current late fee levels generally produce profits to
issuers on the average late payment, the Bureau does not take the
prevalence of high fees as strong evidence that lower fees would
raise issuers' losses from delinquency. Even if lowering late fee
amounts reduced delinquency, doing so might not be in issuers'
interest: a $1 reduction in the late fee amount might decrease
delinquency losses by less than $1 per incident, and thus lower
profits.
---------------------------------------------------------------------------
As discussed above, in considering the appropriate safe harbor
amount for late fees, the Bureau is guided by the factors in TILA
section 149(c), which provides that the Bureau can consider such other
factors that the Bureau deems necessary or appropriate. The Bureau
preliminarily finds that the combined benefits of these effects are
necessary and appropriate factors to take into account, along with
deterrence, in determining whether a late fee safe harbor amount is
reasonable and proportional. The Bureau also preliminarily finds that a
late fee safe harbor amount of $8 for the first and subsequent late
payments strikes the appropriate balance of these considerations.
In addition, the Bureau notes that card issuers have methods to
deter late payment behavior other than charging higher late fees. As
discussed in part II.G, for cardholders who typically pay their balance
in full every month (so-called transactors), a late fee is in addition
to new interest incurred for carrying or revolving a balance. For these
customers who do not roll over a balance in the month before or after a
late fee is assessed, the loss of a grace period and coinciding
interest charges may pose a similar or even greater deterrent effect
than the late fee itself.
Card issuers also have other tools to deter late payment behavior,
and therefore, minimize the potential frequency and cost to card
issuers of late payments, such as reporting the late payment to a
credit bureau which could affect the consumer's credit score,
decreasing the consumer's credit line, limiting the cardholder's
earning or redemption of rewards, and imposing penalty rates. After 30
or so days, card issuers typically report delinquencies to credit
bureaus, which can lower the consumers' credit scores. Since the
Board's 2010 Final Rule went into effect, many credit card issuers,
financial institutions, and third parties have begun providing free
credit scores to consumers.\123\ Access to real-time changes in
consumers' credit scores have likely increased their awareness of any
decline related to late payments. Thus, the deterrent effect of any
negative credit score impact is likely greater than in 2011 and further
encourages payment within one billing cycle of the due date without the
imposition of additional financial penalties.
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\123\ Bureau of Consumer Fin. Prot., The Consumer Credit Card
Market, at 174 to 176 (Dec. 2017) (2017 Report), https://files.consumerfinance.gov/f/documents/cfpb_consumer-credit-card-market-report_2017.pdf.
---------------------------------------------------------------------------
Also, an issuer may take steps to reduce a cardholder's credit line
and limit the cardholder's earning or redemption of rewards. If a
consumer does not make the required payment by the due date, Sec.
1026.55(b)(3) permits a card issuer to take actions to reprice new
transactions on the account according to a penalty rate in certain
circumstances. After 60 days, Sec. 1026.55(b)(4) permits card issuers
to take steps to reprice the entire outstanding balance on the account
according to a penalty rate in certain circumstances.
The Bureau also notes that card issuers have methods to facilitate
timely payments, including, for example, automatic payment and
notification within a certain number of days (e.g., five days) prior to
the due date that the payment is coming due. Both the availability and
adoption of these methods have increased since the Board issued its
2010 Final Rule. In 2013, issuers tracking the number of consumers
making payments online reported that an average of 38 percent of
consumers made at least one non-automatic payment online or through
automatic payment; \124\ in 2020, 61 percent of active accounts made at
least one non-automatic online payment online, and 18 percent of
accounts made at least one automatic payment.\125\ Even in the past few
years, digital enrollment has grown with 80 percent of active accounts
enrolled in an issuer's online portal in 2020 (a 7 percentage point
increase from 2017), 64 percent enrolled in a mobile app (a 13
percentage point increase from 2017), and 56 percent receiving only e-
statements (a 12 percentage point increase from 2017).\126\
---------------------------------------------------------------------------
\124\ 2013 Report, at 68.
\125\ These categories are not mutually exclusive. 2021 Report,
at 39.
\126\ 2021 Report, at 171.
---------------------------------------------------------------------------
Indeed, in response to the ANPR, several card issuers and their
trade groups noted that card issuers currently use many of these
methods. One large trade group, for example, noted that issuers have
developed functions such as automatic payment to help consumers avoid
forgetting to make monthly payments. This commenter further asserted
that automatic payment generally allows consumers to choose an amount
to pay each month and a payment due date based on what best fits their
financial circumstances, increasing the likelihood that consumers will
be able to pay on time. A joint comment submitted by several industry
trade groups stated that issuers promote on-time payments through a
variety of means in addition to late fees, including multiple payment
reminders sent via mail, email, or text notification depending on
consumer preference. These commenters further stated that one issuer
reported that as of five months after rollout of its new alert system,
the issuer's gross monthly late
[[Page 18923]]
fees were 20 percent lower and the late fee incidence rate per balance
had fallen by nearly 25 percent. Similarly, a large credit union trade
group noted that some credit unions already have systems in place or
are currently contracting with third-party vendors to offer their
members convenient reminders for upcoming payment due dates via text
message and email.
The Bureau expects these other consequences to decrease the
likelihood of late payment not only in cases where issuers consider the
deterrence effects of lower late fees to be insufficient. As discussed
in part VII, issuers may offset lost revenue from lower late fees by
increasing interest rates, which would indirectly make late payments
more costly than without this response. Also, issuers may have less
ability to charge consumers higher late fees to maximize profits and
thus may be more inclined to take other, more efficient steps to deter
late payments, including providing timely reminders of an upcoming due
date, well-chosen due dates aligned with cardholders' cash flow, and
encouraging automatic payments.
Consumer conduct. As discussed above, the Board took consumer
conduct into account in adopting the higher $35 fee for repeat late
fees within six billing cycles. The Board explained its belief that
``multiple violations during a relatively short period can be
associated with increased costs and credit risk and reflect a more
serious form of consumer conduct than a single violation.'' \127\
---------------------------------------------------------------------------
\127\ 75 FR 37526, 37527 (June 29, 2010).
---------------------------------------------------------------------------
The Bureau has preliminarily determined that the proposed $8 late
fee safe harbor amount for the first and subsequent late payments
better reflects a consideration of consumer conduct. For example, it is
not clear from analysis of the Y-14 data and other relevant information
that multiple violations during a relatively short period are
associated with increased credit risk and reflect a more serious
consumer violation. Based on the account-level Y-14 data, the Bureau
estimated that only 13.6 percent of accounts incurred a late fee and
then no additional payments were made on that account. In addition, for
accounts that incurred a late fee, the Bureau estimates that a third of
accounts paid the amount due within five days of the payment due date,
half the accounts paid the amount due within 15 days of the payment due
date, and three out of five accounts paid the amount due within 30 days
of the payment due date.\128\
---------------------------------------------------------------------------
\128\ For more information related to the estimates using the Y-
14 data of how many days after the due date accounts that incurred a
late fee paid the amount due, see Figure 4 and related discussion in
part VII.
---------------------------------------------------------------------------
In addition, the Bureau understands that the Metro 2 reporting
format used by the industry for reporting information to credit bureaus
does not consider a payment to be late if it is made within 30 days of
the due date. Thus, for risk management purposes, the industry itself
does not appear to consider the consumer's conduct in paying late to be
a serious form of consumer conduct until the consumer is 30 or more
days late. As discussed above, the Bureau estimates that a majority of
accounts become current before card issuers even consider the consumer
late for credit reporting purposes.
The Bureau also recognizes that some consumers may pay late
chronically but otherwise make a payment within 30 days for a number of
reasons, including cash flow issues, that do not necessarily indicate
that they are at significant risk of defaulting on the credit. For
example, consumers may make a credit card payment after the due date
from the next paycheck to smooth out expenses and avoid paying
overdraft fees. The Bureau notes that a study from 2021 suggests that
some consumers who are paid on a bi-weekly basis may not make the
required payment by the due date but will make the required payment
within 30 days after the due date from their next paycheck.\129\
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\129\ Paolina C. Medina, Side Effects of Nudging: Evidence from
a Randomized Intervention in the Credit Card Market, 34 The Review
of Financial Studies, (May 2021), at 2580-2607, https://doi.org/10.1093/rfs/hhaa108.
---------------------------------------------------------------------------
The Bureau also notes that card issuers have methods other than
late fees to address credit risk. Specifically, card issuers may take
steps to reduce a cardholder's credit line. Also, card issuers that
charge an interest rate are permitted by Sec. 1026.55(b)(3) to reprice
new transactions on the account according to a penalty rate in certain
circumstances. In addition, after 60 days, Sec. 1026.55(b)(4) permits
these issuers to take actions to reprice the entire outstanding balance
on the account according to a penalty rate in certain circumstances.
The Bureau recognizes that card issuers do not charge interest on
charge card accounts, and thus would not be able to use the interest
rate charged on the account to manage credit risk. Nonetheless, current
Sec. 1026.52(b)(1)(ii)(C) permits card issuers to impose a late fee
that does not exceed 3 percent of the delinquent balance on a charge
card account that requires payment of outstanding balances in full at
the end of each billing cycle, when a charge card issuer has not
received the required payment for two or more consecutive billing
cycles. As the Board noted in the 2010 Final Rule, this provision is
intended to provide charge card issuers with more flexibility to charge
higher late fees and thereby manage credit risk when an account becomes
seriously delinquent, because charge card issuers do not apply an APR
to the account balance and therefore cannot respond to serious
delinquencies by increasing that rate.\130\ The proposal would not
amend the current safe harbor set forth in Sec. 1026.52(b)(1)(ii)(C).
---------------------------------------------------------------------------
\130\ See generally, 75 FR 37526, 37544 (June 29, 2010).
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Consideration of all statutory factors--preliminary findings and
determinations. In considering all statutory factors, the Bureau
preliminarily finds that an $8 late fee for the first and subsequent
late payments better represents a balance of issuer costs, deterrent
effects, consumer conduct, as well as the benefits to issuers that
result from relying on a safe harbor amount, like reduced
administrative costs, and the possible beneficial effects of lower late
fees on subprime cardholders' repayment behavior. Further, the Bureau
preliminarily finds that this amount is supported by careful analysis
of the Y-14 data. Finally, the Bureau notes that it has taken into
consideration changes in the market, like automatic payment, that
facilitate billing and payment, thus making it easier for card issuers
to collect timely payments. For these reasons, the Bureau preliminarily
determines that a late fee amount of $8 for the first and subsequent
violations is presumed to be reasonable and proportional to the late
payment violation to which the fee relates.
The Bureau seeks comment on all aspects of its proposal to lower
the late fee safe harbor dollar amounts in Sec. 1026.52(b)(1)(ii) to a
fee amount of $8 for the first and subsequent violations and provide
that a higher safe harbor dollar amount for penalty fees occurring
within the same billing cycle or the next six billing cycles does not
apply to late fees. In particular, the Bureau seeks comment on whether
to set a different amount and, if so, what amount and why, including
any relevant data or other information. The Bureau also seeks comment
on whether to retain the higher safe harbor amount and, if so,
[[Page 18924]]
what amount and why, including any data and other information related
to the deterrent effects of the higher amount or its effects on
consumer conduct. Further, the Bureau seeks comment on whether and why
to set a staggered late fee amount with a cap on the maximum dollar
amount, such that card issuers could impose a fee of a small dollar
amount every certain number of days until the cap is hit.\131\ The
Bureau seeks comment on what small dollar amount and maximum dollar
amount cap may be appropriate and why, including any relevant data or
other information. The Bureau also seeks comment on whether the safe
harbor threshold for late fees should be structured as a percentage of
the minimum payment amount, and if so, what percentage should be used.
In addition, the Bureau seeks comment on what other revisions may be
appropriate to ensure that credit card late fees imposed pursuant to
the safe harbor provisions are reasonable and proportional. In
particular, the Bureau seeks comment on whether, as a condition of
using the safe harbor for late fees, it may be appropriate to require
card issuers to offer automatic payment options (such as for the
minimum payment amount), or to provide notification of the payment due
date within a certain number of days prior to the due date, or both.
---------------------------------------------------------------------------
\131\ In the ANPR, the Bureau solicited comment on a staggered
late fee approach but received no responsive comments.
---------------------------------------------------------------------------
The Bureau further seeks comment on whether and why to lower the
safe harbor amounts in Sec. 1026.52(b)(1)(ii)(A) and (B) (including
whether and why to eliminate the higher safe harbor amount for
subsequent violations that occur during the same billing cycle or in
one of the next six billing cycles) for all other credit card penalty
fees, including fees for returned payments, over-the-limit
transactions, and when payment on a check that accesses a credit card
account is declined. In particular, the Bureau seeks comment on what
the safe harbor amounts for such fees should be, including any relevant
data and information on the costs of such violations to card issuers.
In the alternative, the Bureau seeks comment on whether to finalize the
proposed safe harbor for late fees and eliminate the safe harbors for
other penalty fees.
Proposed Amendments to Sec. 1026.52(b)(1)(ii) Commentary
In addition to the proposed amendments to the late fee safe harbor
amounts in Sec. 1026.52(b)(1)(ii), the Bureau proposes amendments to
the provision's commentary. The Bureau proposes these amendments for
purposes of clarity and consistency with the proposal to lower the late
fee safe harbor amount to a fee amount of $8 for the first and
subsequent violations.
Existing comment 52(b)(1)(ii)-1 explains the circumstances in which
a card issuer may impose a higher penalty fee amount under Sec.
1026.52(b)(1)(ii)(B) for a violation of the same type that occurred
during the same billing cycle or one of the next six billing cycles.
Because Sec. 1026.52(b)(1)(ii)(B) would no longer apply under the
Bureau's proposal to limit the late fee safe harbor amounts to a fee
amount of $8 for the first and subsequent violations, the Bureau
proposes to amend comment 52(b)(1)(ii)-1.i to explain additionally that
a card issuer cannot impose a late fee in excess of $8, as provided in
proposed Sec. 1026.52(b)(1)(ii), regardless of whether the card issuer
has imposed a late fee within the six previous billing cycles. The
Bureau also proposes to amend the illustrative examples in comment
52(b)(1)(ii)-1.iii.A to remove references to late fees and replace them
with references to over-the-limit fees, as Sec. 1026.52(b)(1)(ii)(B)
would still apply to such fees under the Bureau's proposed amendments
to Sec. 1026.52(b)(1)(ii). In addition, the Bureau proposes to amend
the illustrative examples in comments 52(b)(1)(ii)-1.iii.B and C to
reflect a late fee amount of $8, consistent with the proposed
amendments to Sec. 1026.52(b)(1)(ii), and to make minor technical
changes for consistency with the proposal.
The Bureau invites comment on all aspects on these proposed
amendments to the commentary to Sec. 1026.52(b)(1)(ii), including
comment on what additional amendments may be needed to help ensure
clarity and compliance certainty.
Alternatives Considered
The Bureau considered several alternatives in developing the
proposal to lower the safe harbor amounts for late fees. These included
proposing to eliminate for late fees the safe harbor provisions in
Sec. 1026.52(b)(1)(ii) altogether, in which case card issuers could
only impose late fees in amounts that issuers determine to be
reasonable and proportional under the cost analysis provisions in Sec.
1026.52(b)(1)(i). In the ANPR, the Bureau solicited comment on several
questions related to facilitating use of the cost analysis provisions
and to eliminating the safe harbor provisions for late fees. These
included requests for comment on what information card issuers would
use if they were to use the cost analysis provisions in Sec.
1026.52(b)(1)(i) to determine the amount of late fees and what
additional details the Bureau may need to provide concerning how to
comply with the cost analysis provisions, beyond the detail currently
provided in the commentary. In addition, the Bureau requested comment
on what additional processes and procedures, if any, the Bureau should
adopt to ensure compliance if the Bureau were to require that card
issuers use the cost analysis provisions to determine the amount of
late fees.
No commenters expressly supported eliminating the safe harbor
provisions, and most card issuer and trade group commenters expressly
opposed it. No card issuers stated that they use the cost analysis
provisions to determine the amount of late fees. Of the commenters
opposing eliminating the safe harbor provisions, many expressed their
belief that doing so could result in higher late fees or an increase in
the cost of credit for consumers. In addition, a large trade group
commenter expressed concern that eliminating the safe harbor provisions
could increase issuers' compliance costs in determining the overall
costs resulting from late payments (placing a disproportionately high
burden on smaller issuers, community banks, and new entrants) and
potentially result in complicated formulas to determine costs and
appropriate late fees. A credit union expressed concern about increased
compliance costs as well and further noted that those increased costs
would be borne by credit union members. Another trade group commenter
noted that before eliminating the safe harbor provisions, the Bureau
would have to take into account all of the factors that the Bureau is
required to consider under the CARD Act in issuing rules to establish
standards for assessing whether the amount of any penalty fee is
reasonable and proportional to the omission or violation to which it
relates.
The Bureau seeks comment on what revisions to the cost analysis
provisions in Sec. 1026.52(b)(1)(i), if any, may be appropriate to
ensure that late fee amounts determined pursuant to those provisions
are reasonable and proportional and to facilitate compliance. The
Bureau also seeks comment on whether to eliminate the safe harbor
provisions for late fees, rather than lowering the safe harbor amounts
to a fee amount of $8 for the first and subsequent violations as
proposed. As discussed above, the Bureau anticipates that, under the
proposal to lower the late fee safe harbor amount, some card issuers
whose pre-charge-off collection costs are higher than $8 would opt
instead to determine their late fee amounts under the cost
[[Page 18925]]
analysis provisions. Thus, the Bureau notes that its requests for
comment on potential revisions to the cost analysis provisions are
relevant to both retaining the safe harbor provisions as proposed or
eliminating the safe harbor provisions for late fees.
In particular, the Bureau seeks comment on what additional
guidance, if any, should be added to the commentary to Sec.
1026.52(b)(1)(i) concerning the specific costs and other factors that
card issuers may take into account in determining late fee amounts,
including any relevant data or information. Such factors include those
that the Bureau must consider under the CARD Act, such as deterrence
and consumer conduct, in issuing rules to establish standards for
assessing whether the amount of any penalty fee is reasonable and
proportional to the omission or violation to which it relates.
The Bureau also seeks comment on whether and to what extent to rely
on the Bureau's analysis of data related to collection costs,
deterrence, and consumer conduct, as discussed above, in making any
revisions to the cost analysis provisions. In addition, the Bureau
seeks comment on what additional requirements related to card issuers'
internal processes and procedures for calculating and documenting
costs, if any, the Bureau should adopt to ensure compliance.
The Bureau also seeks comment on whether to eliminate the safe
harbor for all other credit card penalty fees, including fees for
returned payments, over-the-limit transactions, and fees charged when
payment on a check that accesses a credit card account is declined. For
such fees, the Bureau seeks particular comment on what guidance, if
any, should be added to the cost analysis provisions in Sec.
1026.52(b)(1)(i) or related commentary concerning the specific costs
and other factors that card issuers may take into account in
determining that fee amounts are reasonable and proportional to the
costs of the specific violation, including any data or information
relevant to the factors that the Bureau must consider under the CARD
Act in issuing rules to establish standards for assessing whether the
amount of any penalty fee is reasonable and proportional to the
omission or violation to which it relates. In addition, the Bureau
seeks comments on what additional requirements related to card issuers'
internal processes and procedures for calculating and documenting
costs, if any, the Bureau should adopt to ensure compliance.
52(b)(1)(ii)(C)
As noted above, the Bureau is not proposing to lower the safe
harbor amount of a late fee that card issuers may impose under the
special rule in Sec. 1026.52(b)(1)(ii)(C) when a charge card account
becomes seriously delinquent. Under the special rule, a card issuer may
impose a fee of 3 percent of the delinquent balance on a charge card
account that requires payment of outstanding balances in full at the
end of each billing cycle if the card issuer has not received the
required payment for two or more consecutive billing cycles. This
provision, as discussed above, is intended to provide charge card
issuers with more flexibility to charge higher late fees and thereby
manage credit risk when an account becomes seriously delinquent,
because charge card issuers do not apply an APR to the account balance
and therefore cannot respond to serious delinquencies by increasing
that rate, as other card issuers can. For clarity, the Bureau proposes
to amend the special rule to provide that card issuers may impose a fee
on a charge card account in those circumstances notwithstanding the
limitation on the amount of a late payment fee in proposed Sec.
1026.52(b)(1)(ii). In addition, the Bureau proposes to amend comment
52(b)(1)(ii)-3, which provides illustrative examples of the application
of Sec. 1026.52(b)(1)(ii)(C). The proposed rule would amend these
examples to use a $8 late fee amount, consistent with the proposed
changes to the late fee safe harbor amount in proposed Sec.
1026.52(b)(1)(ii). The proposed rule also would amend a cross reference
contained in comment 52(b)(1)(ii)-3.iii so that it would correctly
reference paragraph i.
52(b)(1)(ii)(D)
Section 1026.52(b)(1)(ii)(D) provides that the dollar safe harbor
amounts for penalty fees set forth in Sec. 1026.52(b)(1)(ii)(A) and
(B) will be adjusted annually by the Bureau to reflect the changes in
the CPI. The Board included this provision in its Regulation Z, Sec.
226.52(b)(1)(ii)(D) as part of its 2010 Final Rule where it determined
that changes in the CPI, while not a perfect substitute, would be
``sufficiently similar to changes in issuers' costs and the deterrent
effect of the safe harbor amounts.'' \132\ In reaching this
determination, the Board rejected commentators' arguments that the
Board should adjust the safe harbor amounts as appropriate through
rulemaking because the Board believed that this approach would be
inefficient.\133\
---------------------------------------------------------------------------
\132\ 75 FR 37526, 37543 (June 29, 2010).
\133\ Id.
---------------------------------------------------------------------------
The Bureau proposes to no longer apply the annual adjustments to
the safe harbor amount for late fees. The proposed rule would
accomplish this by including the $8 proposed late fee safe harbor
amount in the lead in text to Sec. 1026.52(b)(1)(ii), instead of
including it in Sec. 1026.52(b)(1)(ii)(A) or (B). Thus, Sec.
1026.52(b)(1)(ii)(D), which only applies the safe harbor adjustment to
the dollar safe harbor amounts in Sec. 1026.52(b)(1)(ii)(A) and (B),
would no longer apply to the late fee safe harbor amount. The Bureau
proposes one technical change to the cross reference to Sec.
1026.52(b)(1)(ii)(A) and (B) used in Sec. 1026.52(b)(1)(ii)(D) to
conform to OFR style requirements. In addition, for clarity, the
proposed rule would amend the lead-in paragraph in comment
52(b)(1)(ii)-2 to indicate that the inflation adjustment in Sec.
1026.52(b)(1)(ii)(D) does not apply to late fees. Under the proposal,
Sec. 1026.52(b)(1)(ii)(D) would continue to apply to the dollar amount
safe harbor amounts that apply to other penalty fees, such as over-the-
limit fees, and returned-payment fees. With respect to the dollar
amount of the late fee safe harbor, the Bureau would then monitor the
safe harbor amount for late fees for potential adjustments as
necessary. In addition, although the Bureau's proposal is limited to
late fees given available data, the Bureau also seeks comment about
whether the same approach should be taken with respect to other penalty
fees.
The Bureau notes that inflation adjustments, annual or otherwise,
are not statutorily required. TILA section 149, however, does
statutorily require that any late payment fee or any other penalty fee
or charge, must be ``reasonable and proportional'' to such omission or
violation. When the Board determined that the dollar safe harbor
amounts for penalty fees should be subjected to automatic annual
inflation adjustments, it did not expressly consider the effect such
adjustments may have on the reasonableness and proportionality of the
late payment fee (or any other penalty fee). The Board also did not
provide any other data or evidence to support these adjustments as
necessary. Instead, the Board summarily stated that automatic annual
adjustment would be ``sufficiently similar to changes in issuers' costs
and the deterrent effect of the safe harbor
[[Page 18926]]
amounts'' \134\ and also considered efficiency, which is not
statutorily required. The Board did not go into further details on why
an automatic annual adjustment would be similar to changes in issuers'
costs and the deterrent effect of the safe harbor amounts.
---------------------------------------------------------------------------
\134\ Id.
---------------------------------------------------------------------------
The Bureau analyzed relevant data that was not available to the
Board to take into consideration the statutorily mandated reasonable
and proportional standard by considering the costs incurred as a result
of the violation in determining whether a fee amount is reasonable and
proportional. The Bureau, based on this data, has preliminarily
determined that automatic adjustments based on the CPI are not
necessarily reflective of how the cost of late payment to issuers
changes over time and, therefore, may not reflect the ``reasonable and
proportional'' standard in the statute. While issuers' costs do appear
to be trending up, it does not appear that they are doing so lockstep
with inflation particularly when considering the month-to-month changes
in inflation versus costs. Additionally, there are factors outside of
inflation that may impact when issuers' cost goes up and by how much.
Figure 2 below shows monthly per-account collection costs in the Y-14
collection (for all consumer portfolios with positive costs that month,
solid line) and the CPI-U price index since 2013 (dashed). Given that
the costs fluctuate more than the price level, any overarching trend in
costs is better dealt with through ad hoc adjustments when the safe
harbor amounts are revisited.
[GRAPHIC] [TIFF OMITTED] TP29MR23.068
Thus, the Bureau has considered the cost incurred as a result of a
late payment violation and has preliminarily determined that this
proposal is more aligned with Congress' intent for late fees to be
reasonable and proportional than the current provision which requires
the Bureau to adjust for inflation regardless of what the exact changes
are, if any, in actual costs incurred by the card issuer.
As noted above, the Board also briefly considered deterrence and
efficiency when making the determination to implement an automatic
adjustment for inflation. The Bureau has preliminarily determined that
deterrence should not be the driving factor in whether the late fee
safe harbor amount should be automatically adjusted according to the
CPI, nor should it outweigh considerations of issuers' costs. The
Bureau notes while it is possible for the deterrent effect of the safe
harbor amount to be eroded year-to-year with inflation, there are three
overriding considerations as to why that does not necessarily mean
there should be an automatic adjustment for inflation. First, the
Bureau has preliminarily determined that it does not intend to tightly
peg the deterrent effect to a specific value and recognizes there may
be a range of values under which the deterrent effect would be
suitable. The deterrence of the proposed safe harbor amount is
sufficiently high so that the Bureau is not concerned by the lesser
deterrence of a potentially eroded real value under realistic
trajectories for medium-term inflation before any potential
readjustment could be put in effect. Second, similar to the cost
analysis above, the Bureau preliminarily finds that the deterrent
effect does not move in lockstep with the CPI. Third the Bureau
monitors the market so, under this proposal, the Bureau would be able
to make adjustments to the safe harbor amount on an ad hoc basis based
on this monitoring, at which point the Bureau would again consider the
deterrent effect when promulgating a new safe harbor amount. While TILA
section 149 authorizes the Bureau to consider other factors that the
Bureau deems necessary and important in issuing rules to establish
standards for assessing whether the amount of any penalty fee is
reasonable and proportional, the Bureau has preliminarily determined
that consideration of costs incurred, and the deterrent effect outweigh
consideration of efficiency to help ensure that late fee amounts are
reasonable and proportional.
The Bureau solicits comment on this proposal to eliminate the
automatic annual adjustments to reflect changes in the CPI for the late
fee safe harbor amount, including data and evidence as to why the
adjustment may or may not reflect the reasonable and proportional
standard. The Bureau also seeks
[[Page 18927]]
comment on potential future monitoring or other approaches to ensure
that the late fee amount is consistent with the reasonable and
proportional standard. The Bureau also solicits comments on whether
automatic annual adjustments to reflect changes in the CPI should be
eliminated for all other penalty fees subject to Sec. 1026.52(b),
including over-the-limit fees, returned-payment fees, and declined
access check fees.
52(b)(2) Prohibited Fees
As previously discussed, a card issuer must not impose a fee for
violating the terms or other requirements of a credit card account
under an open-end (not home-secured) consumer credit plan unless the
dollar amount of the fee is consistent with Sec. 1026.52(b)(1) and
(2). Section 1026.52(b)(2) provides certain circumstances where fees
are prohibited. Specifically, Sec. 1026.52(b)(2) prohibits (1) fees
that exceed the dollar amount associated with the violation; and (2)
multiple fees based on a single event or transaction.
The Bureau received comments in response to the ANPR from consumer
group commenters indicating that the Bureau should prohibit the
assessment of a late fee without first providing consumers with a
period of time after each due date to make the required payment (a
``courtesy period''). These consumer group commenters noted that
courtesy periods are already utilized by financial institutions in
other financial products and services. For example, these consumer
group commenters indicated that mortgage loan contracts typically
provide a courtesy period of 10 or 15 days after the due date during
which time borrowers may make a payment without penalty.
The Bureau also received comments from multiple industry commenters
indicating that they already provide consumers with a courtesy period
on their credit card accounts before a late fee is assessed on an
account. Other industry commenters also indicated that card issuers do
not take significant action to collect late payments immediately after
the due date but instead wait to begin or otherwise increase activity
surrounding collection of the late payment.
Commenters also noted when card issuers generally consider a
consumer late from a risk perspective. Consumer group commenters
explained that for credit reporting purposes, card issuers typically do
not treat a consumer as late until payment is 30 days past due. This
was additionally supported by (1) an industry commenter that noted late
payments are not reported to credit bureaus until a cardholder reaches
30 days past due; and (2) another industry commenter that reported they
generally do not hand off accounts to third-party debt collectors until
the cardholder is continuously delinquent or has repeated late payments
for a period of 2-6 months.
The Bureau also received other comments from consumer group
commenters that illustrated how delays beyond consumers' control
contribute to the assessment of late fees. For example, consumers who
pay electronically may experience a delay in payment processing for
payments made over weekends. These unintended late payments could be
avoided with the implementation of a courtesy period.
In light of these comments, the Bureau is considering whether to
require a courtesy period, which would prohibit late fees imposed
within 15 calendar days after each payment due date and be applicable
only to late fees assessed if the card issuer uses the safe harbor or
alternatively, applicable to all late fees generally (regardless of
whether the card issuer assesses late fees pursuant to the safe harbor
amount set forth in Sec. 1026.52(b)(1)(ii) or the cost analysis
provisions set forth in Sec. 1026.52(b)(1)(i)). The Bureau has
preliminary determined that it may be appropriate that the late fee
amount essentially be $0 during the courtesy period because, as noted
above, card issuers may not incur significant costs to collect late
payments immediately after a late payment violation.
Further, given that the late payments may be caused by problems
with unavoidable processing delays, the implementation of a courtesy
period also is consistent with considerations of consumer conduct and
deterrence, since, in these circumstances, the consumer attempted to
pay timely. To the extent card issuers face increased cost from this
15-day courtesy period, the Bureau also believes that issuers have
options that may not have been as readily available at the time of the
Board's 2010 Final Rule to encourage timely payment, like sending
notifications to consumers to warn them of payment due dates or
facilitating automatic payment.
The Bureau solicits comments on whether Sec. 1026.52(b)(2) should
be amended to provide for a courtesy period which would prohibit late
fees imposed within 15 calendar days after each payment due date. The
Bureau additionally solicits comment on whether, if a 15-day courtesy
period is required, the courtesy period should be applicable only to
late fees assessed if the card issuer is using the late fee safe harbor
amount (in which case Sec. 1026.52(b)(1)(ii) would be amended instead
of Sec. 1026.52(b)(2)) or alternatively, if the courtesy period should
be applicable generally (regardless of whether the card issuer assesses
late fees pursuant to the safe harbor amount set forth in Sec.
1026.52(b)(1)(ii) or the cost analysis provisions set forth in Sec.
1026.52(b)(1)(i)). The Bureau also solicits comment, as well as data,
on whether a courtesy period of fewer or greater than 15 days may be
appropriate.
The Bureau notes that the alternative of applying a 15-day courtesy
period only to use of the safe harbor late fee amount may have certain
unintended effects on the possible late fee amounts assessed under the
cost analysis provisions. To illustrate, using the Y-14 data, the
Bureau estimated that a 15-day courtesy period tied to the safe harbor
would cut the incidence of consumers charged the proposed $8 safe
harbor amount by as much as half.\135\ This would cause card issuers
who use the safe harbor amount to recover as much as half of what they
would recover if a 15-day courtesy period were not required. Card
issuers who use the safe harbor amount, therefore, would recover an
average of $4 in late fees per late payment. On the other hand, card
issuers that opt to use the cost analysis provisions to assess late
fees would not be required to provide a 15-day courtesy period. This
could result in an outcome where card issuers who used the cost
analysis provisions to determine the late fee amount could charge a
late fee that is less than the proposed safe harbor amount, for example
$6, but still, on average, collect more in total late fees than if they
charged the proposed $8 late fee amount. In this example, they could
charge $6 on 100 percent of incidences, whereas if they used the
proposed $8 safe harbor amount, they could only charge the proposed $8
on approximately half of the incidences. This could lead to a scenario
where consumers who are subject to late fees determined by the cost
analysis provisions may be assessed a lower late fee amount than the
proposed $8 late fee safe harbor amount but would be charged a late fee
more frequently than consumers who are subject to the late fee safe
harbor amount.
---------------------------------------------------------------------------
\135\ For more information related to the estimates using the Y-
14 data of how many days after the due date accounts that incurred a
late fee paid the amount due, see Figure 4 and related discussion in
part VII.
---------------------------------------------------------------------------
The Bureau additionally solicits comments on whether a 15-day
courtesy period should apply to the other penalty fees that are subject
to Sec. 1026.52(b), including over-the-limit fees and
[[Page 18928]]
returned-payment fees, and if so, why it would be appropriate to apply
a 15-day courtesy period to these other penalty fees. For example,
should the Bureau provide consumers with (1) 15 calendar days after the
billing cycle ends to bring the balance below the credit limit to avoid
being charged an over-the-limit fee; and (2) 15 calendar days after
each due date to make the required periodic payment to avoid a
returned-payment fee if a payment has been returned. With respect to
declined access checks, is a 15-day courtesy period appropriate and if
so, how should it be structured?
52(b)(2)(i) Fees That Exceed Dollar Amount Associated With Violation
Section 1026.52(b)(2)(i)(A) provides that a card issuer must not
impose a fee for violating the terms or other requirements of a credit
card account under an open-end (not home-secured) consumer credit plan
that exceeds the dollar amount associated with the violation. For late
fees, accompanying comment 52(b)(2)(i)-1 provides that the dollar
amount associated with a late payment is the full amount of the
required minimum periodic payment due immediately prior to assessment
of the late payment. Thus, Sec. 1026.52(b)(2)(i)(A) prohibits a card
issuer from imposing a late payment fee that exceeds the full amount of
the required minimum periodic payment.
In implementing TILA section 149, the Board noted that the
prohibition of fees based on violations of the terms or other
requirements of an account that exceed the dollar amount associated
with the violation as set forth in its Regulation Z, Sec.
226.52(b)(2)(i)(A) would be consistent with Congress' intent to
prohibit penalty fees that are not reasonable and proportional to the
violation.\136\ The Board in its reasoning addressed issuers' concerns
that when the dollar amount associated with a violation is small, Sec.
226.52(b)(2)(i)(A) could limit the penalty fee to an amount that is
neither sufficient to cover the issuer's costs nor to deter future
violations.\137\ The Board explained that while it is possible that an
issuer could incur costs as a result of a violation that exceed the
dollar amount associated with that violation, this would not be the
case for most violations.\138\ Additionally, the Board noted that if
card issuers could not recover all of their costs when a violation
involves a small dollar amount, prohibiting late fees that exceed the
full amount of the required minimum periodic payment would encourage
them either to undertake efforts to reduce the costs incurred as a
result of violations that involve small dollar amounts or to build
those costs into upfront rates, which would result in greater
transparency for consumers regarding the cost of using their credit
card accounts.\139\ Furthermore, the Board considered the deterrent
effect and believed that violations involving small dollar amounts are
more likely to be inadvertent and therefore the need for deterrence is
less pronounced.\140\
---------------------------------------------------------------------------
\136\ 75 FR 37526, 37544 (June 29, 2010).
\137\ Id. at 37545.
\138\ Id.
\139\ Id.
\140\ Id.
---------------------------------------------------------------------------
The Board also considered whether compliance with its Regulation Z,
Sec. 226.52(b)(2)(i)(A) would be burdensome on card issuers and
concluded that it would not be overly burdensome.\141\ The Board
explained that, although card issuers may incur substantial costs at
the outset, because Sec. 226.52(b)(2)(i)(A) required a mathematical
determination, issuers should generally be able to program their
systems to perform the determination automatically.\142\
---------------------------------------------------------------------------
\141\ Id.
\142\ Id.
---------------------------------------------------------------------------
When implementing comment 52(b)(2)(i)-1, the Board clarified that
the dollar amount associated with a late payment is the full amount of
the required minimum periodic payment due immediately prior to the
assessment of the late payment. Industry commenters had argued that the
dollar amount associated with a late payment should be the outstanding
balance on the account because that is the amount the issuer stands to
lose if the delinquency continues and the account eventually becomes a
loss.\143\ However, the Board explained that relatively few
delinquencies result in losses, and the violation giving rise to a late
payment fee is the consumer's failure to make the required minimum
periodic payment by the payment due date.
---------------------------------------------------------------------------
\143\ Id.
---------------------------------------------------------------------------
The Bureau proposes to amend Sec. 1026.52(b)(2)(i)(A) to limit the
dollar amount associated with a late payment to 25 percent of the
required minimum periodic payment due immediately prior to assessment
of the late payment. The Bureau also proposes to revise comment
52(b)(2)(i)-1 in the following two ways: (1) to clarify that the
required minimum periodic payment due immediately prior to assessment
of the late payment is the amount that the consumer is required to pay
to avoid the late payment fee, including as applicable any missed
payments and fees assessed from prior billing cycles; and (2) to revise
several examples consistent with the proposed 25 percent limitation.
Like the Board's reasoning in the 2010 Final Rule, this proposal
intends to ensure that late fees are reasonable and proportional, even
late fees that are imposed when consumers are late in paying small
minimum payments. However, the Bureau has preliminarily determined that
restricting the late fee to 25 percent of the minimum payment is more
consistent with Congress' intent to prohibit penalty fees that are not
reasonable and proportional to the violation than the current rule that
allows for a card issuer to potentially charge a late fee that is 100
percent of the minimum payment.
For example, when considering collection costs incurred by card
issuers, it is likely that allowing a late fee that is 100 percent of
the minimum payment is not reasonable and proportional to such costs.
Generally, most card issuers do not incur collection costs that are 100
percent of the amount they are trying to collect. The Bureau has
preliminarily determined that lowering the limitation on late fees to
25 percent of the minimum payment due would still likely allow card
issuers to cover contingency fees paid to third-party agencies for
collecting the amount of the minimum payment prior to account charge-
off. The Bureau understands, based on information requests issued under
order for purposes of compiling the Bureau's periodic CARD Act reports
to Congress, that card issuers that contract with third-party agencies
for pre-charge-off collections pay a contingency fee that is a
percentage of the amount collected, which may include an amount (if
collected) exceeding the minimum payment. These contingency fees can
range from 9.5 percent to 23 percent, further supporting that the
proposed 25 percent of minimum payment due is more reasonable and
proportional than permitting 100 percent of the minimum payment.\144\
It appears that the Board did not consider or have access to such
figures when it limited the dollar amount associated with a late
payment to 100 percent of the required minimum periodic payment. With
this additional data, the Bureau proposes a limitation on late fees
that it has preliminarily determined is more reasonable and
proportional than what was set forth in the Board's 2010 Final Rule.
---------------------------------------------------------------------------
\144\ 2021 Report, at 137.
---------------------------------------------------------------------------
The Bureau recognizes that the proposed 25 percent limitation would
most likely impact the amount of the
[[Page 18929]]
late fee a card issuer can charge when (1) the minimum payment is
small, and (2) the card issuer is using the cost analysis provisions in
Sec. 1026.52(b)(1)(i) generally to set the late fee amount. Based on
the distribution of minimum payments in the Y-14 data, the Bureau
estimates that this may occur infrequently. Y-14 data from October 2021
to September 2022 shows that for those months in which an account was
late, only 12.7 percent of accounts had a minimum payment of $40 or
less. Additionally for those months in which an account was late, at
least 48.5 percent of accounts had a minimum payment above $100. If a
card issuer is using the proposed late fee safe harbor of $8, however,
the instances where 25 percent of the minimum payment may be less than
the proposed $8 safe harbor appear to be even less frequent. For
instance, based on the distribution of minimum payments due in the Y-14
on a monthly basis from October 2021 to September 2022, if card issuers
could only charge up to 25 percent of the minimum payment, only 7.7
percent of accounts would have been charged a late fee of less than $8.
Figure 3 plots the cumulative distribution function \145\ of total
payments due in the range of $1 to $100 in the account-level Y-14 data,
for all months payments were late between October 2021 and September
2022.
---------------------------------------------------------------------------
\145\ The values plotted vertically are the shares of account-
months that paid late with minimum payments at or below the integer
dollar amounts shown on the horizontal axis.
[GRAPHIC] [TIFF OMITTED] TP29MR23.069
Additionally, when the dollar amount associated with the late
payment is small, the Bureau recognizes that the proposal could have
the potential to limit the late fee to an amount that is insufficient
to cover a card issuer's costs in collecting the late payment. However,
permitting a late fee that is 100 percent of the minimum payment does
not appear to be reasonable and proportional to the consumer's conduct
of paying late when the minimum payment is small. For instance, in
situations where the dollar amount associated with the late payment is
small and the card issuer is permitted to charge a late fee that is 100
percent of the minimum payment then a consumer is essentially required
to pay double the amount of a missed payment in the next billing cycle
in addition to the minimum payment due for that next billing cycle.
This result is neither reasonable nor proportional to the consumer's
conduct in paying late.
Furthermore, as the Board noted in its 2010 Final Rule and which
the Bureau has preliminarily determined is still relevant here, to the
extent card issuers cannot recover all of their costs through a late
fee when a late payment involves a small dollar amount, the proposed
limitation will likely encourage card issuers to undertake efforts to
either reduce costs incurred as a result of violations that involve
small dollar amounts or to build those costs into upfront rates, which
has the additional benefit of resulting in greater transparency for
consumers regarding the cost of using credit card accounts. Finally,
the Bureau has preliminarily determined that the Board's explanation
that compliance would not be overly burdensome also remains applicable
to the Bureau's proposal. The proposal would similarly require a
mathematical determination that issuers should generally be able to
program their systems to perform automatically.
In addition, as discussed above, the Bureau proposes to revise
comment 52(b)(2)(i)-1 to clarify that the required minimum periodic
payment due immediately prior to assessment of the late payment is the
amount that the consumer is required to pay to avoid the late payment
fee, including as applicable any missed payments and fees assessed from
prior billing cycles. The Bureau understands that card issuers report
two payment amounts when responding to Y-14 collection efforts, a
minimum payment calculated just for that billing cycle and the total
amount that is required to be paid that billing cycle which includes
missed payment amounts or fees assessed. The Bureau proposes this
revision to comment 52(b)(2)(i)-1 to address any potential confusion
about the payment amount to which the proposed 25 percent limitation
would apply.
The Bureau solicits comment on the proposed 25 percent limitation
discussed above. The Bureau also solicits comment on whether the dollar
amount associated with the other penalty fees covered by Sec.
1026.52(b) should be limited to 25 percent of the dollar amount
associated with the violation. For example, (1) should over-the-limit
fees be limited to 25 percent of the amount of credit extended by the
[[Page 18930]]
card issuer in excess of the credit limit during the billing cycle in
which the over-the-limit fee is imposed; \146\ (2) should the returned-
payment fee be limited to 25 percent of the amount of the required
minimum periodic payment due immediately prior to the date on which the
payment is returned to the card issuer; \147\ and (3) should the
declined access check fee be limited to 25 percent of the amount of the
check.\148\
---------------------------------------------------------------------------
\146\ See comment 52(b)(2)(i)-3 for an explanation of the dollar
amount associated with an over-the-limit violation.
\147\ See comment 52(b)(2)(i)-2 for an explanation of the dollar
amount associated with a returned-payment violation.
\148\ See comment 52(b)(2)(i)-4 for an explanation of the dollar
amount associated with a declined access check violation.
---------------------------------------------------------------------------
52(b)(2)(ii) Multiple Fees Based on a Single Event or Transaction
Section 1026.52(b)(2)(ii) prohibits card issuers from imposing
multiple penalty fees based on a single event or transaction. The
Bureau is not proposing to amend the text of Sec. 1026.52(b)(2)(ii).
However, the Bureau proposes to revise comment 52(b)(2)(ii)-1 to
clarify several examples illustrating this requirement. Specifically,
the proposed rule would amend several examples in comment 52(b)(2)(ii)-
1 to reflect a late fee amount of $8, consistent with the proposed
amendments to Sec. 1026.52(b)(1)(ii), and to make minor technical
changes for consistency with the proposal.
Section 1026.60 Credit and Charge Card Applications and Solicitations
60(a) General Rules
60(a)(2) Form of Disclosures; Tabular Format
Section 1026.60(a) provides that a card issuer must provide the
disclosures set forth in Sec. 1026.60 on or with a solicitation or an
application to open a credit or charge card account. Section
1026.60(a)(2) provides certain format requirements for the disclosures
required under Sec. 1026.60. Section 1026.60(a)(2)(i) provides that in
certain circumstances the disclosures required by Sec. 1026.60
generally must be disclosed in a tabular format. Section
1026.60(a)(2)(ii) provides that when a tabular format is required,
certain disclosures must be disclosed in the table using bold text,
including any late fee amounts and any maximum limits on late fee
amounts required to be disclosed under Sec. 1026.60(b)(9). Comment
60(a)(2)-5.ii includes a late fee example to illustrate the requirement
that any maximum limits on fee amounts must be disclosed in bold text.
The current example assumes that a card issuer's late fee will not
exceed $35. The proposed rule would amend the example to assume that
the late fee will not exceed $8, so that the maximum late fee amount in
the example would be consistent with the proposed $8 late fee safe
harbor amount set forth in proposed Sec. 1026.52(b)(1)(ii).
Appendix G to Part 1026--Open-End Model Forms and Clauses
Appendix G to part 1026 generally provides model or sample forms or
clauses for complying with certain disclosure requirements applicable
to open-end credit plans, including a credit card account under an
open-end (not home-secured) consumer credit plan. The following five
sample forms or clauses set forth an example of the maximum late fee
amount of ``Up to $35'' under the heading ``Late Payment'': (1) G-
10(B); (2) G-10(C); (3) G-10(E); (4) G-17(B); and (5) G-17(C). The
following two sample forms set forth an example of the maximum late fee
amount of ``Up to $35'' under the heading ``Late Payment Warning'': (1)
G-18(D); and (2) G-18(F). Sample form G-21 sets forth an example of the
maximum late fee amount of ``Up to $35'' under the heading ``Late
Payment Fee.'' The following two sample form or clause set forth an
example of the late fee amount ($35) a consumer may incur if the
consumer does not pay the required amount by the due date under the
heading ``Late Payment Warning'': (1) G-18(B); and (2) G-18(G). The
following three sample forms set forth an example of the late fee
amount ($35) that the consumer was charged in the particular billing
cycle under the heading ``Fees'': (1) G-18(A); (2) G-18(F); and (3) G-
18(G).
The Bureau solicits comment on whether the late fee amounts of $35
in these sample forms or clauses, as applicable, should be revised to
set forth late fee amounts of $8, and whether the maximum late fee
amounts of ``Up to $35'' in these sample forms or clauses, as
applicable, should be revised to set forth a maximum late fee amount of
``Up to $8'' so that the late fee amounts and maximum late fee amounts
in the examples are consistent with the proposed $8 late fee safe
harbor amount set forth in proposed Sec. 1026.52(b)(1)(ii). The Bureau
notes that the 11 forms or clauses discussed above are just samples;
card issuers would need to disclose the late fee amount that they
charge or the maximum late fee amount on the account, as applicable,
consistent with the restrictions in Sec. 1026.52(b).
In addition, as discussed in the section-by-section analysis of
Sec. 1026.52(b)(2)(i), the Bureau solicits comment on whether to
restrict card issuers from imposing a late fee on a credit card
account, unless the consumer has not made the required payment within
15 calendar days following the due date. If the Bureau were to adopt
such a limitation, the Bureau solicits comment on whether the following
10 sample forms or clauses that currently disclose an example of the
late fee amount ($35) or maximum late fee amount (``Up to $35'') that
could be incurred on the account should be revised to disclose that a
late fee will only be charged if the consumer does not make the
required payment within 15 calendar days of the due date: (1) G-10(B);
(2) G-10(C); (3) G-10(E); (4) G-17(B); (5) G-17(C); (6) G-18(B); (7) G-
18(D); (8) G-18(F),\149\ (9) G-18(G); \150\ and (10) G-21.\151\ If such
a disclosure were required, the Bureau also solicits comment on
effective ways to help ensure that consumers understand that a 15-day
courtesy period only relates to the late fee, and not to other possible
consequences of paying late, such as the loss of a grace period or the
application of a penalty rate.
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\149\ Sample Form G-18(F) contains two examples of late fees--
one example is the maximum late fee of ``Up to $35'' under the
heading ``Late Fee Warning'' and the other example is the late fee
($35) that was charged to the consumer in the particular billing
cycle under the heading ``Fees.'' The Bureau solicits comment only
on whether the 15-day courtesy period should be incorporated into
the ``Late Fee Warning'' to indicate the late fee would only be
charged if the consumer does not make the required payment within 15
calendar days after each due date. The 15-day courtesy period
disclosure would not be appropriate for the example of the late fee
under the heading ``Fee.''
\150\ Sample Form G-18(G) contains two examples of late fees--
one example is the late fee of ``$35'' under the heading ``Late Fee
Warning'' and the other example is the late fee ($35) that was
charged to the consumer in the particular billing cycle under the
heading ``Fees.'' The Bureau solicits comment only on whether the
15-day courtesy period should be incorporated into the ``Late Fee
Warning'' to indicate the late fee would only be charged if the
consumer does not make the required payment within 15 calendar days
after each due date. The 15-day courtesy period disclosure would not
be appropriate for the example of the late fee under the heading
``Fee.''
\151\ Sample Form G-18(A) only provides an example of a late fee
that has been charged on the account in that billing cycle (see late
fee disclosed under the ``Fees'' heading), so a disclosure of the
15-day courtesy period would not be appropriate for this disclosure.
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In addition, the Bureau notes that the following five samples forms
also include disclosures about maximum penalty fee amounts of ``Up to
$35'' for over-the-limit fees \152\ and returned-payment fees: (1) G-
10(B); (2) G-10(C);
[[Page 18931]]
(3) G-10(E); (4) G-17(B); and (5) G-17(C). As discussed in the section-
by-section analysis of Sec. 1026.52(b)(1)(ii), the Bureau solicits
comment on whether the $8 safe harbor threshold amount that is being
proposed for late fees should also apply to other penalty fees,
including over-the-limit fees and returned-payment fees. If the Bureau
were to adopt the $8 safe harbor threshold amount for all penalty fees,
the Bureau solicits comment on whether the Bureau should revise the
maximum amount of the over-the-credit-limit fees and returned-payment
fees shown on these forms to be ``Up to $8.'' Moreover, in the section-
by-section analysis of Sec. 1026.52(b)(2)(i), the Bureau solicits
comment on whether the 15-day courtesy period should be provided with
respect to all penalty fee, including the over-the-credit-limit fees
and returned-payment fees. If the Bureau were to adopt the 15-day
courtesy period to all penalty fees, the Bureau solicit comment on the
15-day courtesy period should be disclosed in the five sample forms
discussed above with respect to the over-the-limit fee and the
returned-payment fee.
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\152\ These sample forms refer to over-the-limit fees as ``over-
the-credit-limit fees.''
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VI. Effective Date
The Bureau proposes that the final rule, if adopted, would take
effect 60 days after publication in the Federal Register. The Bureau
solicits comment on whether the Bureau should provide a mandatory
compliance date that is after the effective date for the proposed
changes, if adopted, to the limitations and prohibitions on late fees
in Sec. 1026.52(b)(1) and (b)(2), other than the proposed change to
Sec. 1026.52(b)(1)(ii)(D) that would provide that future inflation
adjustments for safe harbor amounts do not apply to the late fee safe
harbor amount. Do card issuers need additional time after the effective
date to make changes to their disclosures to reflect the changes in the
late fee amounts that they are charging on credit card accounts? If so,
when should compliance with the proposed changes, if adopted, be
mandatory?
Separately, under TILA section 105(d), Bureau regulations requiring
any disclosure which differs from disclosures previously required by
part A, part D, or part E shall have an effective date of October 1
which follows by at least six months the date of promulgation subject
to certain exceptions.\153\
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\153\ 15 U.S.C. 1604(d).
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To the extent that TILA section 105(d) may apply to any proposed
changes requiring disclosures, it would not necessitate the October 1
effective date for purposes of the late fee disclosure for two reasons.
First, under Regulation Z, card issuers are currently required to
disclose the late fees amounts, or maximum late fees amounts, as
applicable, that apply to credit card accounts in certain disclosures,
and the disclosure of those late fee amounts must reflect the terms of
the legal obligation between the parties.\154\ In other words, this
proposal, if finalized, would not differ from the current requirement
to disclose late fee amounts; instead, it would solely result in a
change to the amount of the late fee disclosed for issuers using the
safe harbor. Second, this change in amount applies to the safe harbor,
which is an amount that card issuers may elect but are not required to
use.
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\154\ Section 1026.5(c) requires that ``disclosures shall
reflect the terms of the legal obligation between the parties.''
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If the Bureau were to finalize the 15-day courtesy period on which
the Bureau solicits comments as discussed in the section-by-section
analysis of Sec. 1026.52(b)(2)(i), consistent with TILA section
105(d), the Bureau solicits comment as to whether that courtesy period
and potential disclosure language should have an effective date of
``October 1 which follows by at least six months the date of
promulgation.'' \155\
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\155\ 15 U.S.C. 1604(d).
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VII. Dodd-Frank Act Section 1022(b) Analysis
A. Overview
In developing this proposed rule, the Bureau has considered the
proposed rule's potential benefits, costs, and impacts in accordance
with section 1022(b)(2)(A) of the Consumer Financial Protection Act of
2010 (CFPA).\156\ The Bureau requests comment on the preliminary
analysis presented below and submissions of additional data that could
inform the Bureau's analysis of the benefits, costs, and impacts. In
developing the proposed rule, the Bureau has consulted or offered to
consult with the appropriate prudential regulators and other Federal
agencies, including regarding the consistency of this proposed rule
with any prudential, market, or systemic objectives administered by
those agencies, in accordance with section 1022(b)(2)(B) of the
CFPA.\157\ The Bureau also consulted with agencies described in TILA
section 149.\158\
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\156\ 12 U.S.C. 5512(b)(2)(A).
\157\ 12 U.S.C. 5512(b)(2)(B).
\158\ 15 U.S.C. 1665d(b) and 1665d(e).
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B. Data Limitations and Quantification of Benefits, Costs, and Impacts
The discussion below relies on information that the Bureau has
obtained from industry, other regulatory agencies, and publicly
available sources, including reports published by the Bureau. These
sources form the basis for the Bureau's consideration of the likely
impacts of the proposed rule. The Bureau provides estimates, to the
extent possible, of the potential benefits and costs to consumers and
covered persons of this proposal, given available data.
Specifically, this discussion relies on the Bureau's analysis of
both portfolio and account data from the Y-14 collection, as described
in part III.C above. The discussion also relies on data collected
directly from a diverse set of credit card issuers to support the
Bureau's biennial report on the state of the consumer credit card
market as required by the CARD Act.\159\ The Bureau also consulted the
academic literature, as well as public comments in response to the
Board's 2010 Final Rule and the Bureau's ANPR that preceded this
proposal.
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\159\ 2021 Report, at 17.
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The Bureau acknowledges several important limitations that prevent
a full determination of benefits, costs, and impacts. Quantifying the
benefits, costs, and impacts requires quantifying consumer and card
issuer responses to the proposed changes, and the Bureau finds the body
of knowledge on relevant behavioral responses and elasticities
incomplete. In particular, the Bureau is not aware of relevant,
reliable, and quantified evidence that could be used to predict how
changes to late fees would affect late payments and delinquencies or
the expected substitution effects across credit cards and between
credit cards and other forms of credit. Similarly, the Bureau believes
there is little reliable quantitative evidence available on the cost
and effectiveness of steps issuers might take to facilitate timely
repayment, collect efficiently, reprice any of their services,
remunerate their staff, suppliers, or sources of capital differently,
or enter or exit any or all segments of the credit card market. The
Bureau also believes there is little relevant evidence available on the
impacts the proposed changes to the late fee provisions would have on
charge cards or the effects of these potential changes on other penalty
fees. Thus, while the data and research available to the Bureau provide
an important basis for understanding the likely effects of the
proposal, the data and research are
[[Page 18932]]
not sufficient to fully quantify the potential effects of the proposal
for consumers and issuers. This reflects in part the fact that the
effects of the proposal would depend on choices made by independent
actors in response to the proposal, and the data and research available
to the Bureau do not permit reliable predictions of those choices.
In light of these data limitations, the analysis below provides
quantitative estimates where possible and a qualitative discussion of
the proposed rule's benefits, costs, and impacts. General economic
principles and the Bureau's expertise, together with the available
data, provide insight into these benefits, costs, and impacts. The
Bureau requests additional data or studies that could help quantify the
benefits and costs to consumers and covered persons of the proposed
rule.
C. Baseline for Analysis
In evaluating the proposal's benefits, costs, and impacts, the
Bureau considers the impacts against a baseline in which the Bureau
takes no action. This baseline includes existing regulations and the
current state of the market. In particular, it assumes (1) the
continuation of the existing safe harbor amounts for credit card late
fees, currently $30 generally and $41 for each subsequent late payment
occurring in one of the next six billing cycles, and (2) that these
amounts would continue to be adjusted when there are changes to the CPI
in accordance with the current provision in Sec. 1026.52(b)(1)(ii)(D).
D. Potential Benefits and Costs to Consumers and Covered Persons
This section discusses the benefits and costs to consumers and
covered persons of (1) the proposed amendment to Sec.
1026.52(b)(1)(ii) to lower the safe harbor dollar amount for late fees
to $8 and no longer apply to late fees a higher safe harbor dollar
amount for subsequent violations of the same type that occur during the
same billing cycle or in one of the next six billing cycles; (2) the
proposed amendment to Sec. 1026.52(b)(2)(i)(A) to provide that late
fee amounts must not exceed 25 percent of the required payment; and (3)
the proposal to no longer apply inflation adjustments set forth in
current Sec. 1026.52(b)(1)(ii)(D) to the safe harbor amount for late
fees. The proposal would also amend certain other comments to clarify
the application of the rule and make conforming adjustments. The Bureau
does not separately discuss the benefits and costs of these other
amendments but believes they will generally lower compliance costs for
card issuers and facilitate consumer understanding of the rule.
Finally, the discussion below also considers the benefits and costs of
certain other alternatives to the proposed provisions on which the
Bureau is seeking comment in part V.
Potential Benefits and Costs to Consumers and Covered Persons of the
Proposed Late Fee Safe Harbor Changes
The Bureau proposes to amend Sec. 1026.52(b)(1)(ii) to lower the
safe harbor amounts for late fees--currently set at $30 and $41 for a
first and subsequent violation, respectively--to a late fee amount of
$8 for the first and subsequent violations.\160\ The Bureau's proposal
would eliminate the higher safe harbor amount for subsequent late
payment violations.
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\160\ As discussed in the section-by-section analysis of Sec.
1026.52(b)(1)(ii)(C) in part V, the Bureau is not proposing to lower
or otherwise change the safe harbor amount of a late fee that card
issuers may impose when a charge card account becomes seriously
delinquent.
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Potential Benefits and Costs to Consumers of the Proposed Late Fee Safe
Harbor Changes
In general, the proposal to lower the safe harbor amount for late
fees to $8 for first and subsequent violations would benefit consumers
by reducing the amount they pay through late fees. This direct benefit
may be offset to the extent that card issuers raise other prices in
response and potentially if consumers respond to reduced late fees in
ways that harm them in the long run. The discussion below begins with
the direct benefits from lower fees, then turns to the possibility that
those benefits are offset through changes to other prices, and then
addresses the potential effects on consumers of changes to late payment
behavior.
The direct benefits to consumers could be as high as the fees saved
with the $8 fee amount on violations without or with a recent prior
violation--that is, the difference between fees currently charged and
the lower $8 amount. The Bureau previously estimated that aggregate
late fees assessed for issuers in the Y-14+ data were $14 billion in
2019 and $12 billion in 2020 and that the average late fee charged was
$31 in 2020.\161\ Thus, if fees were reduced to $8, it would have
reduced aggregate late fees charged to consumers by several billion
dollars. To estimate the extent of the reduction, the Bureau examined
Y-14 account-level data for the 12-month period from September 2021 to
August 2022. The issuers in this sample represent an estimated 73
percent of aggregate credit card balances and reported collecting
$5.688 billion in late fees during the period, and the Bureau estimates
that the collected fees would have been $1.451 billion, or 74.6 percent
lower, if fees had been $8 rather than the fees actually
collected.\162\ The Bureau does not have data from this recent period
for any issuers other than those included in the Y-14 data. Assuming
that the 73 percent of balances covered by these issuers with
collection costs in the Y-14 data collection most recently is
representative of the fee structure and incidence of the entire market,
these figures would have implied $5.8 billion savings for consumers
(not including any fees charged but not ultimately collected). However,
the Y-14+ data suggest that late fee revenue per account at these Y-14
issuers is less than for other issuers. This implies a larger reduction
in fee revenue at issuers excluded from the sample, meaning that $5.8
billion is therefore likely to be an underestimate of the potential
reduction in fees. If the 74.6 percent reduction in fee revenue were
applied to the total estimated $12 billion in late fees from 2020, it
would imply a reduction in fee revenue of approximately $9 billion.
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\161\ Late Fee Report, at 4. As discussed in part III.C, the Y-
14+ data includes information from the Board's Y-14 data and a
diverse group of specialized issuers.
\162\ By adjusting the collected late fee revenue with how
assessed fee amounts would have changed, this analysis disregards
the apparent but immaterial benefits to accounts whose assessed fees
are not collected (but charged off). The Bureau estimates that this
affects as much as 14 percent of late fee incidents. Also, as many
as 5 percent of assessed late fees are reversed in later months
(within-month waivers and reversals might already be netted out in
the account data the Y-14 collection collects). The analysis here
applied the same cap to reversals as to the original fees, thus
minimizing the overcounting of benefits.
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The estimated benefits to consumers may be lower than this,
considering that smaller issuers, which make up many of the issuers not
in the Y-14 collection, currently charge lower fees on average. In
2020, the average late fee for issuers in the Y-14+ data was $31. Based
on the agreements in the Bureau's credit card agreement database, in
2020, the modal maximum disclosed late fee for smaller issuers was $25.
Specifically, cardholders of these smaller issuers who pay late would
benefit less from the proposed changes to the late fee safe harbor
amounts than those of major issuers charging late fees closer to the
existing safe harbor threshold amounts.
Conversely, the aggregate benefit to consumers will be higher than
this estimate if issuers not in the Y-14 charge more late fees than the
issuers in the Y-14 data. The Bureau's Y-14+ survey suggests that large
issuers
[[Page 18933]]
outside the Y-14 charge high late fee amounts and generate more late
fee revenue per outstanding balances. Smaller issuers might also have
enough late payment violations to cancel out the effect of small fee
amounts on saved fees per incident.\163\
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\163\ The Board has been calculating quarterly credit card
delinquency and charge-off rates from FFIEC Call Reports. The share
of delinquent loans among loans outstanding has been around 2-3
times higher at banks outside the top 100 by consolidated foreign
and domestic assets following 2017. The ratio of net credit card
charge-offs over the average level of loans outstanding has been
around 2 times higher among banks not in the top 100 since 2017. Bd.
of Governors of the Fed. Rsrv. Sys., Charge-Off and Delinquency
Rates on Loans and Leases at Commercial. https://www.federalreserve.gov/releases/chargeoff/default.htm (last updated
Nov. 22, 2022).
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The benefits to consumers will be lower if issuers choose to set
late fee amounts higher than the safe harbor amount by relying on cost
analysis provisions in Sec. 1026.52(b)(1)(i). Based on the available
recent Y-14 data, the Bureau expects that fewer than four of the twelve
covered issuers may use the cost analysis provisions to charge late fee
amounts above $8 in the near future based on their reported pre-charge-
off collection costs per paid violation. The Bureau's calculations
suggest that if these major issuers relied on the cost analysis
provisions in Sec. 1026.52(b)(1)(i) while the others in the Y-14 data
used the safe harbor amount, it would lower the mechanical impact of
the proposed safe harbor amounts by 3 percent relative to the case of
all Y-14 issuers charging late fees of $8 (from an estimated fee
reduction of $4.23 billion for these Y-14 issuers to an estimated $4.11
billion), representing a reduction in fees collected of 72.3 percent
for these issuers.\164\ Assuming that the 73 percent of balances
covered by these issuers with collection costs in the Y-14 data
collection most recently is representative of the fee structure and
incidence of the entire market, these figures would have implied $5.6
billion savings for consumers (not including any fees charged but not
ultimately collected). However, as discussed above, the Y-14+ data
suggest that late fee revenue per account at these Y-14 issuers is less
than for other issuers. This implies a larger reduction in fee revenue
at issuers excluded from the sample, meaning that $5.6 billion is
therefore likely to be an underestimate of the potential reduction in
fees. If the 72.3 percent reduction in fee revenue were applied to the
total estimated $12 billion in late fees from 2020, it would imply a
reduction in fee revenue of approximately $9 billion.
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\164\ This analysis assumes each issuer sets late fees for all
their credit card products using only the safe harbor in Sec.
1026.52(b)(1)(ii) or only the cost analysis provisions in Sec.
1026.52(b)(1)(i). In practice, some issuers may use the safe harbor
amount for some credit card products and the cost analysis
provisions for others, which could lead the revenue impact of the
proposed safe harbor amount to be different among issuers in the Y-
14.
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While the Bureau does not have comparable data on the collection
costs of smaller issuers, the lower late fee amount they typically set
suggests that a smaller share of smaller issuers than large issuers are
likely to use the cost analysis provisions in Sec. 1026.52(b)(1)(i).
Consumer gains when issuers use the cost analysis provisions would be
even lower if the cost analysis imposes additional costs on the issuers
who resort to it, and, in turn, those issuers shift these costs to
their cardholders. However, the Bureau expects these administrative
costs to be small relative to revenue.
The above estimates do not consider potential responses by
consumers to lower late fees--in particular, the possibility that
consumers are more likely to miss a payment due date if the fee for
doing so is reduced. If this occurs and more consumers make untimely
payments, consumers could face costs for doing so, including costs like
increased penalty interest rates or lower credit scores. Such a
response would affect the estimates above, as well as the final
incidence of the benefits and the burden. As discussed in part V above
concerning deterrence, however, the available evidence (see the
section-by-section analysis of Sec. 1026.52(b)(2)(ii) in part V) leads
the Bureau to expect that a $8 late fee would still have a deterrent
effect on late payments, although that effect may be lessened by the
proposed change to some extent, and other factors may be more relevant
(or may become more relevant) towards creating deterrence. Even with a
late fee of $8, consumers would have incentives to make their minimum
payment on time to avoid the late fee and other potential consequences
of paying late, such as the potential loss of the grace period, and
potential credit reporting consequences. To the extent consumers are
late in paying because they are inattentive to their account or because
they are so cash-constrained that they are unable to make a minimum
payment, the amount of the late fee may have little effect on whether
they pay late. The Bureau, however, seeks comment on these potential
costs to consumers, including data and information as to whether lower
late fees for the first or subsequent payments may result in consumers
being more likely to pay late and, if so, potential costs to consumers
in terms of potential penalties or lower credit scores.
To the extent consumers who pay on time when faced with current
late fees would instead rationally choose to make a late payment in
response to lower late fees that would result from the proposal, those
consumers would benefit from the additional flexibility that a lower
late fee would afford. For such consumers, the benefit of delaying the
minimum payment past the due date, net of the perceived other financial
consequences of missing the due date, must be less than their account's
existing late fees but greater than the fees that would result from the
proposal. Their benefit from the rule would be less than the difference
between the two fees, but it would still add to the total consumer
gains from the proposal. More generally, all consumers would benefit
from the option value of managing a potential episode of financial
distress at lower costs if and when necessary.
Since the proposal would reduce issuers' revenue from late fees,
issuers may respond by adjusting interest rates or other card terms to
offset the lost income. Issuer responses will affect both the sum of
consumer gains and their distribution across market segments and
populations. Total consumer gains will be the lowest if issuers make up
for all lost revenue and any potential cost increase by raising revenue
by changing other consumer prices. This full offset could manifest in
higher maintenance fees, lower rewards, or higher interest on interest-
paying accounts.
Offsetting price increases are most likely where markets are most
competitive since, in competitive markets, any reduction in revenue is
likely to drive some firms out of the market, limiting supply and
driving prices up for consumers. As the recent profitability of
consumer credit card businesses suggests that these markets are
imperfectly competitive, the Bureau expects less than full offset, with
consumers gaining in total from reduced late fees.\165\ The same
observation
[[Page 18934]]
indicates that the market will see few exits and no fewer entries. The
two pieces of evidence most relevant to set the Bureau's expectations
for offset are an academic publication and a Bureau report that
includes an analysis of the effects of the fee changes resulting from
implementing the CARD Act.\166\ The Bureau reads this evidence as
tentatively suggesting less than full offset, if any.
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\165\ In its latest annual report on credit card profitability
to Congress, the Board found that ``[c]redit card earnings have
almost always been higher than returns on all bank activities, and
earnings patterns for 2021 were consistent with historical
experience.'' Bd. of Governors. of the Fed. Rsrv. Sys.,
Profitability of Credit Card Operations of Depository Institutions
(July 2022), at 7, https://www.federalreserve.gov/publications/files/ccprofit2022.pdf. The Board also found that the quarterly
average return on credit card assets (ROA) using Y-14 data was
stable at around 1.10 percent during the 2014-19 period before the
pandemic, while the quarterly average credit card bank ROA using
Call Report data was 1.03 percent. These measures dipped below zero
early in the COVID-19 pandemic but rebounded to around 2 percent by
2021 for the Y-14. Late and other fees ranged from 7 percent to 28
percent of ROA during the 2014-2021 period. Robert Adams et al.,
Credit Card Profitability, FEDS Notes, Bd. of Governors. of the Fed.
Rsrv. Sys., (Sept. 9, 2022), https://doi.org/10.17016/2380-7172.3100.
\166\ Sumit Agarwal et al., Regulating Consumer Financial
Products: Evidence from Credit Cards, 130 Quarterly J. of Econ., at
111-164 (February 2015), https://doi.org/10.1093/qje/qju037; 2013
Report, at 20-37.
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To illustrate an upper bound of the potential offsetting effect,
consider the increase in interest income required to offset lost late
fee income.\167\ As discussed above, over the last 12 months, limiting
late fees to $8 could have reduced the late fee revenue of Y-14 issuers
with cost data by 72.3 percent, or $4.11 billion, even if some issuers
use the cost analysis provisions to determine the amount of the late
fee as discussed above. Total interest income at the issuers with
collection costs in the Y-14 data was $71.4 billion over the same 12
months, so offsetting the lost fee revenue would require increasing
interest revenue by $4.11 billion, or 5.8 percent. This change would be
less than 2 percentage points on an APR that is below 34.7
percent.\168\
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\167\ The available evidence suggests that issuers compete
fiercely with more salient (though not necessarily transparent)
rewards and, to a lesser extent, annual or account maintenance fees.
(Other types of penalty fees, such as over-the-limit or returned
check fees, are subject to existing CARD Act limits, and in any case
apply only in particular circumstances and generate relatively
little revenue.) This leads the Bureau to estimate an interest-only
response as the full-offset benchmark. See, for instance, the
academic research cited in footnote 45, or Figure 44 of the 2013
Report, at 82.
\168\ For data related to total interest income in the Y-14
collection, see Revenue-Cost Report, at 6-9.
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Economic theory also suggests the potential for a pass-through of
greater than what would be required to offset lost fee revenue, if the
credit card market is sufficiently adversely selected on APRs.\169\
Intuitively, if the offsetting change in APRs leads low-risk consumers
to leave the pool of credit card borrowers to a greater degree than it
leads higher-risk consumers to leave the pool of credit card borrowers,
then the resulting change in average credit risk could lead to further
increases in APRs in market equilibrium. However, the Bureau notes that
existing evidence on adverse selection in the credit card market
suggests that adverse selection is unlikely to be this severe. Most
notably, a research paper studying the effects of the safe-harbor fee
levels in the Board's 2010 Final Rule finds that this high pass-through
scenario can be rejected with high statistical confidence.\170\
Complementary academic research finds less than full pass-through of
other shocks to credit card lenders' costs,\171\ and that the effects
of adverse selection after the Board's 2010 Final Rule took effect were
generally modest.\172\ Overall, the Bureau concludes that concerns
about adverse selection are unlikely to alter the above analysis's
upper bound of less than 2 percentage points change in APRs below 34.7
percent.
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\169\ Neale Mahoney & E. Glen Weyl, Imperfect Competition in
Selection Markets, 99 Review of Economics and Statistics, MIT Press
at 637-51(Oct. 1, 2017), https://doi.org/10.1162/REST_a_00661.
\170\ Agarwal et al., supra note 166.
\171\ Tal Gross et al., The Economic Consequences of Bankruptcy
Reform, 111 (7) American Economic Review, 2309-41 (July 2021),
https://www.aeaweb.org/articles?id=10.1257/aer.20191311.
\172\ Scott Thomas Nelson, Essays on Household Finance and
Credit Market Regulation, Ph.D. Thesis, Massachusetts Institute of
Technology, Department of Economics (2018), https://dspace.mit.edu/handle/1721.1/118066.
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This upper bound on a full interest offset, at least on one that
reprices all accounts by the same percentage points to recover all lost
late fee revenue with higher finance charges, suggests that any losses
to credit access would be limited. However, the Bureau acknowledges
that late fee revenue has been concentrated on certain market segments,
suggesting that any price responses are also likely to be focused in
those segments. In particular, interest rates or other charges of
subprime credit cards might increase more than for other cards, and
some consumers might find these cards too expensive due to higher
interest rate offers. Even if this were to happen, it would not result
from a higher average consumer cost of using credit cards but from
greater transparency about the cards' actual expected cost of
ownership.\173\ Lost credit to consumers consciously declining offers
because of the card's actual price becoming more salient would
constitute no harm to them.
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\173\ As discussed below, however, the cost of ownership of
cards could go up for some consumers and down for others, depending
on their usage patterns.
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On the other hand, it is also possible that some consumers' access
to credit could fall if issuers could adequately offset lost fee
revenue expected from them only by increasing APRs to a point at which
a particular card is not viable, for example, because the APR exceeds
applicable legal limits. The Bureau seeks data and other information to
help assess the likelihood of offsetting price changes and any related
changes in credit access.
Any offsetting changes, like the decrease in late fees, would
affect different consumers differently depending, for example, on how
often they pay late and whether they carry a balance. Cardholders who
never pay late will not benefit from the reduction in late fees and
could pay more for their account if maintenance fees in their market
segment rise in response--or if interest rates increase in response and
these on-time cardholders also carry a balance. Frequent late payers
are likely to benefit monetarily from reduced late fees, even if higher
interest rates or maintenance fees offset some of the benefits.
Cardholders who do not regularly carry a balance but occasionally miss
a payment would benefit from the proposed changes so long as any
increase in the cost of finance charges (including the result of late
payments that eliminate their grace period) is smaller than the drop in
fees.\174\ Cardholders who carry a balance but rarely miss a payment
are less likely to benefit on net.
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\174\ If a consumer pays late and loses the grace period, the
consumer will pay interest on the balances. The analysis here
focuses on whether the increased interest as a result of the
increase in the rate to offset the reduction in late fee revenue is
greater than the reduction in the late fee.
---------------------------------------------------------------------------
Though the late fee changes most directly benefit those who make
late payments, the Bureau notes that late fees are collected only from
those delinquent cardholders who eventually pay at least the fee
amount. Some collection costs and charge-off losses are caused by
delinquent customers who do not recover before account closure and
charge-off. These cardholders would not receive any of the benefits of
the lower fees they are nominally assessed but do not pay in
practice.\175\ Using a subsample of Y-14 account data, the Bureau
estimated that around 14 percent of late fees are assessed to accounts
that never make another payment.
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\175\ This holds as long as the additional charged-off balance
due to higher late fees does not change the amount the holder of the
debt can eventually collect after charge off, including through
litigation or wage garnishment. Even defaulting consumers would
benefit otherwise.
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The Bureau understands that many American households use more than
one credit card. Some of the cross-subsidies from card to card could
remain within the household, and thus the range of household-wise gains
and losses will be less than the gains and losses on separate credit
card accounts: Some consumers will save in late fees on one of their
cards but might experience offsetting terms on another
[[Page 18935]]
where they are not late. The Bureau has not quantified the magnitude of
this effect as late fees are not observed in available household-level
data, and available account-level data do not link cards of the same
holder or their household.
As mentioned above in part II.E, consumers may not fully consider
late fees when shopping for a credit card. To the extent this is true,
the actual cost of using a credit card will be greater than consumers'
expected cost and reducing late fees will reduce the difference between
the two. Whether or not changes to other prices offset a reduction in
late fee revenue, consumers may benefit if, when choosing a credit
card, they have a more accurate view of the expected total costs of
using the card. To the extent that some consumers become better
informed about the terms of credit cards, issuers may respond by
offering improved terms, which could benefit even consumers who do not
shop around. In addition, consumers might benefit or incur costs from
further repricing and restructuring other financial products cross-
marketed by credit card issuers and their holding companies. The Bureau
is not aware of data that could help quantify such effects.
Recent results in psychology and economics highlight some patterns
likely to affect consumer welfare in the credit card market, depending
on how accurately cardholders forecast the likelihood that they will
incur late fees. A seminal theoretical study \176\ identified and
coined the term for na[iuml]vet[eacute]-based discrimination, in which
firms recognize that some potential consumers are prone to systematic
mistakes. If this is indeed a feature of credit card markets,
``na[iuml]ve'' and ``sophisticated'' consumers, using the terminology
of this scholarship, could be affected by the proposed regulation
differently,. Na[iuml]ve consumers may mistakenly expect high fees to
be unimportant to them, as they are overly optimistic about not missing
a payment. Such consumers would benefit from the proposed changes to
late fee amounts, which lower the cost of this mistake. Sophisticated
consumers, inasmuch they would have been cross-subsidized by na[iuml]ve
customers' costly mistakes, may pay higher maintenance fees or interest
or collect fewer rewards if the issuer offsets the revenue lost to
na[iuml]ve consumers. The Bureau considers that to the extent there are
offsetting changes to card terms, some of these changes are likely but
has not quantified their magnitude.
---------------------------------------------------------------------------
\176\ Paul Heidhues & Botond K[ouml]szegi, Na[iuml]vet[eacute]-
Based Discrimination, 132 (2) The Quarterly Journal of Economics, at
1019-1054 (May 2017), https://doi.org/10.1093/qje/qjw042.
---------------------------------------------------------------------------
The Bureau acknowledges the possibility that consumers who were
more likely to pay attention to late fees than to other consequences of
paying late, like interest charges, penalty rates, credit reporting,
and the loss of a grace period, might be harmed in the short run if a
reduction in late fees makes it more likely that they mistakenly miss
payments. The Bureau has not quantified this effect but notes that
reducing late fees may increase issuer incentives to find other
approaches to make the consequences of late payment salient to
consumers, including reminders or warnings.
Other results in psychology and economics might suggest that the
proposal might pose some harm to consumers for whom high late fees
serve as a valuable commitment device without which they would have a
harder time responsibly managing their credit card debt.\177\ To the
extent that late fees benefit some consumers in this way, any harm to
such consumers may be mitigated to the extent that the proposal creates
additional incentives for issuers to emphasize reminders, automatic
payment, and other mechanisms that maintain similar or better payment
behavior, as discussed below.
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\177\ For a discussion of commitment devices most relevant to
this context, see section 10.2 of John Beshears et al., Behavioral
household finance, Handbook of Behavioral Economics: Applications
and Foundations, at 177-276 (2018), https://doi.org/10.1016/bs.hesbe.2018.07.004.
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The proposal may benefit consumers indirectly by making late
payments less profitable to issuers and thereby increasing issuer
incentives to take steps that will encourage on-time payment. Consumers
may benefit from issuer practices such as more effective reminders or
convenient payment options. If issuers bear no net cost from late
payments, or even profit from them, then they have no incentive to take
even inexpensive steps to reduce the incidence of late payments. Even
with the proposed changes, issuers will not have incentives to take all
steps they could that would efficiently reduce the incidence of late
payment since the late fees they do charge mean they do not bear the
full cost of late payments. Nonetheless, by limiting issuer revenue
from violations that exceeds cost, this proposal changes issuer
incentives in a way that benefits consumers.
Potential Benefits and Costs to Covered Persons of the Proposed Late
Fee Safe Harbor Changes
Because the proposal would significantly reduce the aggregate value
of late fees paid by consumers, the proposal would significantly reduce
late fee revenue for issuers. As discussed below, issuers can mitigate
these costs of the proposal to some extent by taking other measures
(e.g., increasing interest rates or changing rewards), and the
reduction in late fees could affect consumer choices or market
competition in ways that may create benefits or costs to issuers.
As discussed above concerning benefits to consumers, the direct
effects of reducing late fees generally to the safe harbor amount of $8
could be, based on recent Y-14 data, to reduce issuer late fee revenue
by 72.3 percent.
Issuer costs and revenue would also be affected by changes in
consumer behavior in response to the reduced late fee amounts. In
particular, lower late fees could make consumers more likely to make
late payments. As discussed above in the section-by-section analysis of
Sec. 1026.52(b)(1)(ii) in part V, the Bureau expects that a $8 late
fee would still have a deterrent effect on late payments, although that
effect may be lessened by the proposed change to some extent, and other
factors may be more relevant (or may become more relevant) to creating
deterrence. The Bureau also expects that any additional late payments
due to the reduced late fee safe harbor amount would generate both
additional fee income and additional collection costs relative to an
outcome with lower fee amounts but no additional incidents. Even if
more consumers pay late because of the decreased late fee amount, the
cost of collecting any such additional late payments is unlikely to be
greater, per incident, than the cost of collecting late payments under
the existing safe harbor. Therefore, the Bureau expects that collection
costs to card issuers would not increase by more than fee income
derived from any additional late payments.
Besides any impact on collection costs, additional missed payments
could result in additional delinquencies and ultimately increase credit
losses. The Bureau is not aware of evidence showing that higher late
fees will prevent consumers from eventually defaulting on their
accounts.\178\
[[Page 18936]]
However, the Bureau notes that issuers can take other steps to help
reduce the likelihood of consumers missing payments, which would
mitigate potential costs of the proposal from increased delinquencies.
For example, issuers could increase investments in payment reminders or
automatic payments or provide lower-friction methods of payment or
rewards for paying on time.\179\ Issuers could also increase minimum
payment amounts or adjust credit limits to reduce credit risk
associated with consumers who make late payments.
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\178\ For some consumers, a high late fee may contribute to
default by increasing their overall debt burden and making it more
difficult to recover from delinquency. For example, the 2022 paper
by Grodzicki et al., described above in the section-by-section
analysis of Sec. 1026.52(b)(1)(ii) in part V, with all the caveats
noted there, found that a decrease in late fees increases borrowing
for prime borrowers but triggers repayment for subprime cardholders.
This paper explained that this latter effect on subprime cardholders
might result from the lower late fee amount lessening the need for
subprime cardholders to focus on avoiding late fees and instead
allowing some subprime cardholders to start to pay more attention to
the high cost of their revolving debt.
\179\ A joint comment submitted by several industry trade groups
stated that issuers promote on-time payments through a variety of
means in addition to late fees, including multiple payment reminders
sent via mail, email, or text notification depending on consumer
preference. These commenters further stated that one issuer reported
that as of five months after rollout of its new alert system, the
issuer's gross monthly late fees were 20 percent lower and the late
fee incidence rate per balance had fallen by nearly 25 percent.
Similarly, a large credit union trade group noted that some credit
unions already have systems in place or are currently contracting
with third-party vendors to offer their members convenient reminders
for upcoming payment due dates via text message and email.
---------------------------------------------------------------------------
As discussed above, issuers could also increase other prices in a
way that would offset revenue lost from reduced late fees. In general,
issuers will set the terms of credit cards to maximize profits, and it
is not clear that limiting late fees will directly affect the profit-
maximizing finance charge or account maintenance fee, for example.
However, a reduction in late fee revenue could cause issuers to change
other terms if the lost late fee revenue reduced the profitability of
issuing credit cards to the point at which issuers are faced with a
choice between raising new revenue by changing other card terms or
exiting the market. As discussed above, such offsetting price increases
are most likely where markets are most competitive since any reduction
in revenue is likely to drive some firms out of the market, limiting
supply and driving prices up for consumers. As the recent profitability
of consumer credit card businesses suggests that these markets are
imperfectly competitive, the Bureau expects the market to see few exits
and no change in entries.\180\
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\180\ See supra note 165.
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Issuers' revenue loss from the proposal could be mitigated by the
ability to use the cost analysis provisions in Sec. 1026.52(b)(1)(i)
rather than setting late fees at the safe harbor amount. Any issuer
with costs greater than $8 per late payment would be able to set a
higher fee using the cost analysis provisions, although doing so would
likely involve some expense to conduct the relevant analysis, ensure
that it complies with the existing rule's requirements and potential
changes from the proposed rule, and ensure that the relevant data and
analysis are documented in a way that would permit the issuer to
demonstrate compliance to regulators.
Potential Benefits and Costs to Consumers and Covered Persons of
Lowering the Limitation on Late Fees to 25 Percent of the Minimum
Payment Due
The Bureau proposes to amend Sec. 1026.52(b)(2)(i)(A) to limit the
dollar amount associated with a late payment to 25 percent of the
required minimum periodic payment due immediately before the assessment
of the late fee. Currently, late fee amounts must not exceed 100
percent of the required payment.
Consumers with minimum payments smaller than four times their
card's late fee amount would benefit from the proposed change by saving
the difference between the regular late fee amount and 25 percent of
their minimum payment. For issuers setting fees at the $8 safe harbor
amount, this includes cardholders with minimum payments below $32. For
a twelve-month period from October 2021 to September 2022 in the Y-14
data collection, 15.9 percent of all account-months had minimum
payments below $32, or 7.7 percent of account-months for which payments
were late.\181\ Savings for these accounts at the Y-14 issuers would
have been $44 million between September 2021 and August 2022, relative
to where late fees are limited to $8 but can be up to 100 percent of
the minimum payment due. Qualitatively, the benefits to consumers from
this proposed limitation would be affected by the same factors
described above in connection with the consumer benefits of the lower
safe harbor amount, with the benefits concentrated among consumers with
lower balances who are generally more likely to have low minimum
payment amounts.
---------------------------------------------------------------------------
\181\ For more information on the distribution of minimum
payments for late accounts in the Y-14 data, see Figure 3 and
related discussion in the section-by-section analysis of Sec.
1026.52(b)(2)(i) in part V.
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Similarly, this provision would decrease revenue to covered persons
to the extent that they would otherwise charge a late fee greater than
25 percent of the minimum payment due. As described above, applying
this limitation to 12 months of Y-14 data suggests lost revenue of $44
million at the Y-14 issuers relative to the case in which late fees are
limited to $8 but can be up to 100 percent of the minimum payment due.
These benefits to consumers and corresponding costs to issuers will
be higher for issuers that determine the late fee amount using the cost
analysis provisions in Sec. 1026.52(b)(1)(i) and impose late fee
amounts higher than the safe harbor amount.
The calculations of reduced late fees above assume no change to
minimum payment amounts. The Bureau expects these benefits to consumers
and costs to issuers to decrease if issuers increase minimum payment
amounts, either in response to the proposed rule, as a result of market
developments, or for any other reason.
The Bureau understands that late fee amounts would be more varied
under this proposal than without it, as this limit on the amount of the
late fee that could be charged would apply more often than under the
current limit of 100 percent of the minimum payment. On the other hand,
to the extent issuers take advantage of the proposed safe harbor, very
few accounts would face a late fee other than $8 due to the 25 percent
limitation. In principle, if late fee amounts are less predictable,
consumers could find it more challenging to plan, increasing the
likelihood of mistakes. The Bureau does not expect such effects to be
significant, particularly given that this limitation would affect late
fee amounts only when balances and minimum payment amounts are low.
Potential Benefits and Costs to Consumers and Covered Persons From Not
Applying the Annual Adjustments to the Proposed $8 Safe Harbor Amount
for Late Fees
The Bureau proposes to not apply the annual adjustments based on
the level of the CPI to the proposed $8 safe harbor amount for late
fees. Instead, the Bureau would continue to monitor the market and
adjust the safe harbor amount ad hoc to reflect changes to pre-charge-
off collection costs and other statutory factors. The discussion below
considers the effects of this change relative to a baseline in which
the proposed safe harbor amount is adjusted based on the level of the
CPI; however, the effects
[[Page 18937]]
would be qualitatively similar at other safe harbor amounts.
The benefits and costs of this proposal to consumers and covered
persons depend on whether future adjustments by the Bureau would be
greater or less than the changes that would result from the CPI
adjustments that are currently used. As discussed in the section-by-
section analysis of Sec. 1026.52(b)(1)(ii)(D) in part V and
illustrated in Figure 2, trends in collection costs and the CPI do not
appear to be closely related. If the safe harbor amount were to fall or
to grow less rapidly through the Bureau's future ad hoc adjustments
than the current CPI adjustments, then consumers would benefit from the
reduced real cost of late fees, and issuers using the safe harbor
amount would see lower revenue. Conversely, suppose the safe harbor
amount was adjusted in the future through ad hoc adjustments by more
than it would be through the current CPI adjustments. In that case,
consumers could face costs from the proposed change, and issuers using
the safe harbor amount would see increased revenue.
Under the proposal, it is likely that the safe harbor amount would
be adjusted less frequently than under the current rule. Some consumers
would benefit from the transparency and administrative ease of late fee
amounts changing less often. These would be the cardholders of issuers
who do not set the late fee using the cost analysis provisions in Sec.
1026.52(b)(1)(i), because those issuers would still collect more late
fee revenue under the safe harbor than their pre-charge-off collection
costs. The Bureau also notes that even under CPI-based adjustments, the
lower $8 safe harbor amount combined with the requirement that
adjustments are rounded to the closest $1 means that the safe harbor
amount would likely change less frequently than recently.
To the extent that some issuers experience increases in collection
costs that would have been addressed through CPI-based adjustments,
these issuers would retain the option under the proposal to use the
cost analysis provisions in Sec. 1026.52(b)(1)(i) and thus recover
their higher costs with higher late fee amounts. Their cardholders
would still benefit from this provision if the cost increase was slower
than the rise in the CPI. If it was faster, the consumer would have
seen the same fee rise from this issuer determining the late fee using
the cost analysis provisions in Sec. 1026.52(b)(1)(i), irrespective of
this provision.
Issuers with decreasing costs would lose out on a mechanical
increase in their revenue above cost to reflect CPI adjustments unless
the safe harbor amount is otherwise adjusted. As shown in Figure 2
above in part V, recent collection cost totals from the Y-14 portfolio
data suggest that some issuers have been experiencing decreasing
nominal collection costs even in the inflationary period of 2021-2022.
Potential Benefits and Costs to Consumers and Covered Persons of a
Courtesy Period Which Would Prohibit Late Fees Imposed Within 15
Calendar Days After the Payment Due Date
In part V, the Bureau solicits comment on whether Sec.
1026.52(b)(2) should be amended to provide for a courtesy period that
would prohibit late fees imposed within 15 calendar days after the
payment due date. Such a courtesy period could apply only to late fees
assessed if the card issuer is using the late fee safe harbor amount
or, alternatively, could be applicable generally (regardless of whether
the card issuer assesses late fees according to the safe harbor amount
set forth in Sec. 1026.52(b)(1)(ii) or the cost analysis provisions in
Sec. 1026.52(b)(1)(i)).
A 15-day courtesy period would most directly benefit consumers who
will pay late within 15 days of the original due date. Benefits and
costs to consumers generally and to covered persons will depend on
market responses to offset the lost revenue.
The Bureau does not have data that directly shows how often
payments are made within 15 calendar days after the due date. However,
it has conducted its own analysis to estimate what fraction of missed
payments is made within 15 calendar days of the original due date. In
lieu of direct evidence on how many days after the due date late
payments are made, this work used the Y-14 account data to count what
fraction of accounts charged late fees were current by the end of a
calendar month, separately by how far the due date was from the end of
the month. Among accounts that paid late fees, those with due dates
early in the month are more likely to be current at the end of the
month. The higher share of delinquent accounts becoming current the
earlier the due date was within a month partly reflects the increasing
share of payments the longer time passes after the due date. The Bureau
acknowledges that other factors might differ between accounts with due
dates closer to the end of the month rather than earlier due dates, and
those factors might confound repayment behavior. However, the
monotonically increasing share of current accounts in the number of
days between the due date and the month's end makes the Bureau
reasonably confident in this approach approximating the survival curve
of pending payments, or the cumulative distribution function of payment
days after due. Figure 4 plots the aforementioned shares for due dates
4 to 27 days before the end of the calendar month on Y-14 data from
October 2021 to September 2022, where a monotonic relationship might
most closely approximate the survival curve of late payments being made
past due.
[[Page 18938]]
[GRAPHIC] [TIFF OMITTED] TP29MR23.070
As shown in Figure 4, this analysis concluded that in this recent
12-month period for accounts with payments due 15 days before the end
of the month, about half of accounts with missed payments had become
current by the end of the month, suggesting that about half of accounts
with late payments become current within 15 days. The Bureau solicits
comment on more direct estimates of the share of missed payments
subsequently made within 15 calendar days of the original due date.
Introducing a 15-day courtesy period would likely lead to an
increase in late payments, at least an increase in those made within 15
days of the due date. This would benefit some consumers directly and
indirectly by permitting additional flexibility in their budget. For
example, paying a few days later might enable some consumers to avoid
borrowing from another source in order to make a timely payment, or
might simply permit them to make the payment at a time more convenient
to them. On the other hand, some consumers might be harmed by taking
advantage of a courtesy period if they do not fully account for other
consequences of a late payment, which typically include increased
finance charges and a two-month loss of the grace period. An increase
in late payments could also increase collection costs for issuers,
although those costs may be low for accounts that become current
shortly after the due date.
Even consumers who genuinely save some hassle, mental or pecuniary
cost by delaying payment by less than 15 calendar days might suffer
harm in the long run if this leads to confusion about effective due
dates on their accounts or erodes habits of prudent money management.
However, the 15-day courtesy period would provide a considerable net
benefit to consumers facing temporary financial distress around their
original due date.
A 15-day courtesy period would, to some degree, replace existing
informal, ad hoc, and inconsistent waiver and reversal policies of many
issuers, making these policies more transparent and uniform. This would
benefit consumers who do not ask currently for their late fees to be
reversed and would potentially cost consumers who now enjoy occasional
late payments at no cost, as they might bear some of the lost fee
revenue offset.
Introducing a 15-day courtesy period could affect the late fees
that issuers charge based on the cost analysis provisions in Sec.
1026.52(b)(1)(i). With the courtesy period, a smaller number of
delinquencies--the more serious ones--would need to generate enough
late fee revenue to cover pre-charge-off collection costs. This would
generally mean issuers using cost analysis provisions in Sec.
1026.52(b)(1)(i) would charge higher late fees, increasing the relative
burden on the consumers more than 15 calendar days late on a payment.
The absolute burden on a consumer rises only if their issuer's
collection costs are high enough that cost analysis provisions in Sec.
1026.52(b)(1)(i) yields a late fee higher than the safe harbor with the
courtesy period in place. At issuers with costs low enough that the $8
safe harbor amount covers pre-charge-off collection costs even when
collected only on accounts more than 15 calendar days late, consumers
who pay within the courtesy period benefit, and issuer revenue would
fall without raising the absolute burden on longer-term delinquent
cardholders.
As highlighted in part V, if the 15-day courtesy period only
applies to the safe harbor, it would provide an additional incentive
for issuers to use the cost analysis provisions in Sec.
1026.52(b)(1)(i) to determine the late fee amount. Issuers with
collection costs in the $4-8 range would have the incentive to set late
fees using the cost analysis provisions in Sec. 1026.52(b)(1)(i) and
charge the late fee to every late payer without regard to a courtesy
period, even if their costs are somewhat less than the safe harbor
amount. This could limit the number of consumers who benefit from a
courtesy period by not paying a late fee compared to applying the
courtesy period when the cost analysis provisions apply. However, it
could also have the effect of reducing late fees for some consumers who
do not take advantage of the courtesy period and whose issuers, without
a courtesy period, would have set late fees at the safe harbor amount.
Potential Benefits and Costs to Consumers and Covered Persons of the
Potential Alternative To Eliminate the Safe Harbor
As discussed in part V, the Bureau solicits comment on the
alternative of proposing to eliminate for late fees the safe harbor
provisions in Sec. 1026.52(b)(1)(ii) altogether, in which case card
issuers could only impose late fees in amounts that issuers determine
to be reasonable and proportional under the cost analysis provisions in
Sec. 1026.52(b)(1)(i).
Under the alternative, each issuer would determine its own late fee
amount based on its own pre-charge-off
[[Page 18939]]
collection costs. This alternative would likely result in lower late
fees for many issuers than would the $8 safe harbor. As discussed in
part V and above in this section, the data available to the Bureau
suggest that many issuers have pre-charge-off collection costs that are
lower than the proposed $8 safe harbor amount. These issuers'
cardholders would see even larger direct benefits than under the
proposal, with issuers keeping none of their remaining fee revenue
above cost.
From the Y-14 data, the Bureau estimates that the total savings for
late fee-paying cardholders could have been as high as $499 million in
the September 2021-August 2022 period, comparing late fees calculated
on a cost basis to the proposal's $8 safe harbor amount (with some
issuers in the Y-14 data using the cost analysis provisions to
determine the late fee, as discussed above). As discussed above
concerning the proposed safe harbor amount, the actual benefits to
consumers, and revenue loss for issuers, would depend on several
factors, including how consumers respond to lower late fee amounts and
how issuers offset lost revenue. As discussed above, issuers might
respond to limitations on late fees by increasing revenue collected
through other terms such as interest rates or account maintenance fees,
and to the extent that this alternative would lower late fees by more
than the proposed safe harbor it could mean a correspondingly greater
increase in the interest rate or other charges as a result of such
changes. As with the estimates discussed above, the Y-14 data reflect
large issuers, and the Bureau does not have equivalent data on smaller
issuers' pre-charge-off collection costs but has no reason to think the
benefits and costs to smaller issuers or their cardholders would be
qualitatively different.
Besides the effect on fee revenue, eliminating the safe harbor
would impose costs on issuers by eliminating the administrative
simplicity that comes from a bright-line rule. Each issuer that charges
a late fee would incur costs to conduct an analysis of pre-charge-off
costs and to maintain records necessary to demonstrate that their late
fees are reasonable and proportional under the cost analysis
provisions.
Eliminating the safe harbor would likely result in greater
variation of late fees and more uncertainty about year-to-year
revisions, which could diminish consumer understanding and complicate
shopping. However, to the extent that cardholders do compare late fees
when they choose which credit card accounts to open, charge, or repay,
at-cost late fee amounts would create some market pressure on issuers
to lower costs by increasing efficiency. This welfare gain could be
split between consumers and covered persons.
Potential Benefits and Costs to Consumers and Covered Persons of
Changes to the Safe Harbor Provision With Respect to Other Penalty Fees
In part V, the Bureau solicits comment on whether the changes that
are the same or similar to those proposed for late fees should be
applied to other penalty fees, such as over-the-limit fees, returned-
payment fees, and declined access check fees. In particular, the Bureau
solicits comment on whether the proposed safe harbor provisions should
apply to other penalty fees and whether, alternatively, if the Bureau
were to eliminate the safe harbor provisions in Sec. 1026.52(b)(1)(ii)
for late fees, the Bureau should also eliminate the safe harbor for
other penalty fees.
The data available to the Bureau indicate that these other penalty
fees are significantly less common than late fees, generating fee
revenue that is less than 1 percent of aggregate late fee revenue. This
implies that the effects on both consumers and issuers of any changes
to these fees would be much smaller in aggregate than the effects of
changes to the late fee provisions.
Whether adjustments to the safe harbor provision for these other
penalty fees would significantly lower the fees depends on the costs
associated with the incidents giving rise to these fees. The Bureau
does not have data available with which it can estimate these costs.
The Bureau requests data on the costs associated with the violations
giving rise to these fees that could be used to better understand what
penalty fee amounts issuers would be likely to set based on a cost
analysis.
Assuming that the penalty fee amounts were reduced in response to a
change in the safe harbor provision, the benefits would likely be
greatest for consumers most likely to violate these terms of their card
agreement--for example, consumers who are facing tight budgets and most
likely to make a charge that causes their balance to exceed their limit
or to experience a returned payment. For issuers, the cost of such a
change would include lost fee revenue as well as potential costs from
additional violations. Issuers could also respond by taking other steps
to discourage additional violations, such as further limiting the
extent to which they approve above-the-limit transactions. Such steps
would involve additional costs but would mitigate any costs from
additional violations.
E. Potential Specific Impacts of the Proposed Rule on Depository
Institutions and Credit Unions With $10 Billion or Less in Total
Assets, as Described in Section 1026
As with other issuers, depository institutions and credit unions
with $10 billion or less in total assets would generally lose fee
revenue as a result of the proposed rule. The Bureau has no reason to
believe that depository institutions and credit unions with $10 billion
or less in total assets would experience effects qualitatively
different from those discussed above in part VII.D. However, with
respect to pre-charge-off collection costs, the Bureau recognizes that
most of its analysis is based on data from the largest issuers and may
not be representative of smaller issuers, who do not report to the Y-14
collection. Smaller issuers may have pre-charge-off collection costs
that are higher on average than those of the issuers represented in the
Y-14 data, which could mean that smaller issuers are more likely to set
late fees using the cost analysis provisions in Sec. 1026.52(b)(1)(i)
rather than the safe harbor amount. On the other hand, the Bureau
expects that the proposed $8 amount would have a proportionately
smaller negative impact on smaller issuers' late fee income due to
smaller issuers' having lower late fee amounts. The Bureau collects
card agreements from many more smaller issuers than issuers for which
the Bureau has financial data. Based on a review of those agreements
from over 500 credit card issuers, each outside the top 20 by
outstanding credit card loans and having more than 10,000 credit card
accounts, the Bureau established that smaller issuers charged smaller
late fees in 2020 than larger issuers, with a modal maximum disclosed
late fee for smaller issuers of $25.\182\ In contrast, in 2020, the
average late fee for issuers in the Y-14+ data was $31. The Bureau
specifically solicits comment on this analysis and the potential impact
on smaller issuers of the proposed $8 safe harbor amount and the other
provisions of this proposed rule, including data or evidence related to
smaller issuers' costs of late payments.
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\182\ Late Fee Report, at 14.
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F. Potential Specific Impacts of the Proposed Rule on Consumer Access
to Credit and on Consumers in Rural Areas
The Bureau is concerned about the geographic concentration of
current late fees and that areas with higher incidence of late fees
tend to also be areas with higher numbers of consumers
[[Page 18940]]
from disadvantaged groups, as summarized in part II.F above. However,
the Bureau has not analyzed the incidence of late fees in rural areas
specifically. Bureau research has found that consumers in rural areas
are somewhat less likely than other Americans to have a credit card,
and not significantly more likely than other Americans to have a credit
card delinquency.\183\ These findings suggest that the effects of the
rule on late fees paid by rural consumers may generally be similar to
those of other Americans.
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\183\ Bureau of Consumer Fin. Prot., Consumer Finances in Rural
Appalachia, at 12 (Sept. 1, 2022) (Appalachia Report), https://www.consumerfinance.gov/data-research/research-reports/consumer-finances-in-rural-appalachia/.
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On the other hand, consumers in rural areas have lower median
household income, and lower median credit card balances, than consumers
in non-rural areas.\184\ Though high-income Americans have more credit
cards, low-income areas have more late payments per card. This means it
is unclear whether savings from the proposed rule would be larger or
smaller for consumers in rural areas; however, reductions in fee
amounts that are similar in dollar terms may be more meaningful on
average for consumers with lower incomes, meaning that they may be more
meaningful on average for consumers in rural areas.
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\184\ Id. at 8, 12.
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As discussed above in part VII.D., the Bureau acknowledges that
late fee revenue has been concentrated in certain market segments,
suggesting that any price responses are also likely to be focused in
those segments. In particular, interest rates or other terms of
subprime or regionally prevalent credit cards may increase more than
for other cards, and it is possible that some consumers might find
these cards too expensive due to higher interest rate offers. Even if
this were to happen, it would not result from a higher expected
consumer cost of using credit cards but from greater transparency about
the cards' actual anticipated cost of ownership. Lost credit to
consumers consciously declining offers with the actual price fully
salient would constitute no harm to them.
VIII. Regulatory Flexibility Act Analysis
The Regulatory Flexibility Act (RFA) generally requires an agency
to conduct an initial regulatory flexibility analysis (IRFA) and a
final regulatory flexibility analysis of any rule subject to notice-
and-comment rulemaking requirements unless the agency certifies that
the rule will not have a significant economic impact on a substantial
number of small entities (SISNOSE).\185\ The Bureau is also subject to
specific additional procedures under the RFA involving convening a
panel to consult with small business representatives before proposing a
rule for which an IRFA is required.\186\ As the below analysis shows,
an IRFA is not required for this proposal because the proposal, if
adopted, would not have a SISNOSE.
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\185\ 5 U.S.C. 601 et seq.
\186\ 5 U.S.C. 609.
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Small institutions, for the purposes of the Small Business
Regulatory Enforcement Fairness Act (SBREFA) of 1996, are defined by
the Small Business Administration. Effective December 19, 2022,
depository institutions with less than $850 million in total assets are
determined to be small for the period used in the subsequent
analysis.\187\
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\187\ See Small Business Administration Table of Sizing
Standards, https://www.sba.gov/document/support--table-size-standards (Dec. 19, 2022).
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The proposed rule would affect small entities that issue credit
cards most directly by reducing late fee revenue from credit cards. To
assess whether the proposed rule would have a significant economic
effect on small entities, the Bureau considers the significance of
credit card late fee revenue as a share of the total revenue of
affected small entities. As discussed in part VII, the Bureau does not
have data with which to precisely estimate the effect of the proposed
rule on late fee revenue. The Bureau analyzes available information on
total late fee revenue below because the Bureau considers total late
fee revenue to be an upper bound on potential impacts of the proposal
on small entities.
The Bureau estimates that there are approximately 3,780 small
banks, of which approximately 498 report outstanding credit card debt
on their balance sheets.\188\ In addition, the Bureau estimates that
there are approximately 4,586 small credit unions, of which
approximately 2,785 report credit card assets.\189\ Detailed
information about sources of credit card revenue is not available for
most small banks. However, FFIEC Call Reports include a measure of
outstanding credit card debt held as assets. Revenue for banks is
reported on the FFIEC Call Reports as net-interest income plus non-
interest income. Interest income is partially reported by product type.
For example, all banks are required to report ``all interest, fees, and
similar charges levied against or associated with all extensions of
credit to individuals for household, family, or other personal
expenditures arising from credit cards (in domestic offices).'' \190\
The Bureau considers this interest and fee income on outstanding credit
card balances as a proxy for credit card revenue.
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\188\ These estimates and others for small banks are based on
data from the quarterly Federal Financial Institutions Examination
Council (FFIEC) Consolidated Reports of Condition and Income (FFIEC
Call Reports), and refer to the fourth quarter of 2021, unless
otherwise noted. Fed. Fin. Insts. Examination Council, Call Reports,
https://cdr.ffiec.gov/public/ManageFacsimiles.aspx (last visited
Dec. 14, 2022).
\189\ These estimates and others for small credit unions are
based on data from NCUA Call Reports, and refer to the fourth
quarter of 2021, unless otherwise noted. Nat'l Credit Union Admin.,
Call Report Quarterly Data, https://www.ncua.gov/analysis/credit-union-corporate-call-report-data/quarterly-data (last visited Dec.
14, 2022).
\190\ See the Board's Micro Data Reference Manual, B485, https://www.federalreserve.gov/apps/mdrm/data-dictionary (last visited Dec.
14, 2022).
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Credit cards represent a small fraction of both assets and revenue
for small banks. In terms of assets, only 13 small banks reported
credit card assets at 1 percent of total assets or higher. Among the
remaining small banks with asset share below 1 percent, 29 had a credit
card revenue share above 1 percent of total revenue. While the Bureau
does not have a precise estimate of the share of total bank credit card
revenue generated by late fees, it expects this share to be well below
20 percent of total credit card revenue at most banks.\191\ Thus, for
the vast majority of small banks, even a large reduction in credit card
late fee revenue would represent well below 1 percent of bank revenue
and, therefore, would not have a significant economic impact.
---------------------------------------------------------------------------
\191\ The Bureau has estimated that more than 10 percent of
industry-wide fee and interest revenue from credit cards comes from
late fees annually. Late Fee Report, at 14. The Bureau's analysis of
card agreements in the same report suggested that small issuers
charge smaller late fees per incident than large ones, suggesting
that reliance on late fees by small banks may be less than the
industry average.
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The Bureau does not have equivalent data on credit card revenue for
small credit unions because credit unions are not required to
separately report income from their credit card business in the NCUA
Call Reports. However, NCUA Call Reports provide information on credit
card assets as a share of total assets. Based on that information, 44.9
percent of small credit unions have more than 1 percent of their assets
in credit cards.
To obtain a rough estimate of credit card revenue shares at small
credit unions, the Bureau extrapolated using the relationship between
credit card revenue share and credit card asset share in bank call
report data. Based on bank data, the Bureau estimated that the credit
card revenue share averaged between 68 percent and 102 percent of the
credit card asset share for small
[[Page 18941]]
banks in recent years.\192\ The Bureau notes that the fact that credit
card asset shares are so much higher at credit unions than at small
banks means that extrapolation from small banks should be treated with
caution.
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\192\ The Bureau performed a linear regression of credit card
revenue share on credit card asset share for small banks that have
any credit card assets, using cross sectional data from the fourth
quarter of years 2018-2021. The slope of a regression line that
crosses the origin is between 0.68 and 1.02, with an out-of-sample
R\2\ measure of goodness-of-fit between 0.22 and 0.55. The
relationship is steeper before the pandemic, explaining more of the
cross-sectional variance in the revenue share.
---------------------------------------------------------------------------
Applying these estimates to credit card assets at small credit
unions would imply that credit card revenue shares are also relatively
small at small credit unions. Only 268 small credit unions (about 5.8
percent of small credit unions, or about 9.6 percent of those that
issue credit cards) are estimated to have credit card revenue above 4
percent of total revenue. For the remaining credit unions with
estimated credit card revenue at or below 4 percent of total revenue,
the estimate that late fees generally make up well under 20 percent of
credit card revenue means that late fees likely represent well below
0.8 percent (20 percent of 4 percent) of revenue for these credit
unions. As with small banks, the small share of revenue coming from
credit cards, together with the fact that late fees make up only a
fraction of credit card revenue, implies that even a significant drop
in late fee revenue would not have a significant economic impact for
the large majority of small credit unions.
In response to the ANPR, one trade group commenter asserted that
smaller creditors and community banks, particularly those that extend
credit to consumers who are trying to build or repair their credit,
have proportionately higher compliance costs and would face the most
risk if the safe harbor was reduced or eliminated, limiting their
ability to continue to offer credit products at the same terms. Several
industry trade group commenters also asserted that because lowering the
safe harbor would have a significant impact on small financial
institutions, the Bureau must comply with the SBREFA by convening a
SBREFA panel in any late fee rulemaking. However, these commenters did
not provide specific data that leads the Bureau to doubt the
conclusions from the analysis above. While it is possible that some
small entities would experience a significant economic impact as a
result of the proposed rule, the analysis shows that it would not be a
substantial number of small entities.
Accordingly, the Director hereby certifies that this proposal, if
adopted, would not have a significant economic impact on a substantial
number of small entities. Thus, neither an IRFA nor a small business
review panel is required for this proposal. The Bureau requests comment
on the analysis above and requests any relevant data.
IX. Paperwork Reduction Act
The information collections contained within TILA and Regulation Z
are approved under OMB Control Number 3170-0015. The current expiration
date for this approval is March 31, 2023. The Bureau has determined
that this proposed rule would not impose any new information
collections or revise any existing recordkeeping, reporting, or
disclosure requirements on covered entities or members of the public
that would be collections of information requiring approval by the
Office of Management and Budget under the Paperwork Reduction Act.\193\
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\193\ 44 U.S.C. 3506; 5 CFR 1320.
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List of Subjects in 12 CFR Part 1026
Advertising, Banks, Banking, Consumer protection, Credit, Credit
unions, Mortgages, National banks, Reporting and recordkeeping
requirements, Savings associations, Truth in lending.
Authority and Issuance
For the reasons set forth above, the Bureau proposes to amend
Regulation Z, 12 CFR part 1026, as set forth below:
PART 1026--TRUTH IN LENDING (REGULATION Z)
0
1. The authority citation for part 1026 continues to read as follows:
Authority: 12 U.S.C. 2601, 2603-2605, 2607, 2609, 2617, 3353,
5511, 5512, 5532, 5581; 15 U.S.C. 1601 et seq.
Subpart G--Special Rules Applicable to Credit Card Accounts and
Open-End Credit Offered to College Students
0
2. Section 1026.52 is amended by revising paragraphs (b)(1)(ii) and
(b)(2)(i) to read as follows:
Sec. 1026.52 Limitation on fees.
* * * * *
(b) * * *
(1) * * *
(ii) Safe harbors. A card issuer may impose a fee for a late
payment on an account if the dollar amount of the fee does not exceed
$8. Other than a fee for a late payment, a card issuer may impose a fee
for violating the terms or other requirements of an account if the
dollar amount of the fee does not exceed, as applicable:
(A) $30;
(B) $41 if the card issuer previously imposed a fee pursuant to
paragraph (b)(1)(ii)(A) of this section for a violation of the same
type that occurred during the same billing cycle or one of the next six
billing cycles; or
(C) Three percent of the delinquent balance on a charge card
account that requires payment of outstanding balances in full at the
end of each billing cycle if the card issuer has not received the
required payment for two or more consecutive billing cycles,
notwithstanding the limitation on the amount of a late payment fee in
paragraph (b)(1)(ii) of this section.
(D) The amounts in paragraphs (b)(1)(ii)(A) and (B) of this section
will be adjusted annually by the Bureau to reflect changes in the
Consumer Price Index.
(2) * * *
(i) Late payment fees that exceed 25 percent of the amount of the
required minimum periodic payment or fees, other than late payment
fees, that exceed dollar amount associated with violation--
(A) Generally. A card issuer must not impose a fee for a late
payment on a credit card account under an open-end (not home-secured)
consumer credit plan that exceeds 25 percent of the amount of the
required minimum periodic payment due immediately prior to assessment
of the late payment fee. For fees other than a fee for a late payment,
a card issuer must not impose a fee for violating the terms or other
requirements of a credit card account described in this paragraph (A)
that exceeds the dollar amount associated with the violation.
* * * * *
0
3. In supplement I to part 1026:
0
a. Under Section 1026.7--Periodic Statement, revise 7(b)(11) Due Date;
Late Payment Costs,
0
b. Under Section 1026.52--Limitations on Fees, revise 52(a)(1) General
rule and 52(b) Limitations on Penalty Fees, and
0
c. Under Section 1026.60--Credit and Charge Card Applications and
Solicitations, revise 60(a)(2) Form of Disclosures; Tabular Format.
The revisions read as follows:
Supplement I to Part 1026--Official Interpretations
Section 1026.7--Periodic Statement
* * * * *
7(b)(11) Due Date; Late Payment Costs
1. Informal periods affecting late payments. Although the terms
of the account
[[Page 18942]]
agreement may provide that a card issuer may assess a late payment
fee if a payment is not received by a certain date, the card issuer
may have an informal policy or practice that delays the assessment
of the late payment fee for payments received a brief period of time
after the date upon which a card issuer has the contractual right to
impose the fee. A card issuer must disclose the due date according
to the legal obligation between the parties, and need not consider
the end of an informal ``courtesy period'' as the due date under
Sec. 1026.7(b)(11).
2. Assessment of late payment fees. Some State or other laws
require that a certain number of days must elapse following a due
date before a late payment fee may be imposed. In addition, a card
issuer may be restricted by the terms of the account agreement from
imposing a late payment fee until a payment is late for a certain
number of days following a due date. For example, assume a payment
is due on March 10 and the account agreement or State law provides
that a late payment fee cannot be assessed before March 21. A card
issuer must disclose the due date under the terms of the legal
obligation (March 10 in this example), and not a date different than
the due date, such as when the card issuer is restricted by the
account agreement or State or other law from imposing a late payment
fee unless a payment is late for a certain number of days following
the due date (March 21 in this example). Consumers' rights under
State law to avoid the imposition of late payment fees during a
specified period following a due date are unaffected by the
disclosure requirement. In this example, the card issuer would
disclose March 10 as the due date for purposes of Sec.
1026.7(b)(11), but could not, under State law, assess a late payment
fee before March 21.
3. Fee or rate triggered by multiple events. If a late payment
fee or penalty rate is triggered after multiple events, such as two
late payments in six months, the card issuer may, but is not
required to, disclose the late payment and penalty rate disclosure
each month. The disclosures must be included on any periodic
statement for which a late payment could trigger the late payment
fee or penalty rate, such as after the consumer made one late
payment in this example. For example, if a cardholder has already
made one late payment, the disclosure must be on each statement for
the following five billing cycles.
4. Range of late fees or penalty rates. A card issuer that
imposes a range of late payment fees or rates on a credit card
account under an open-end (not home-secured) consumer credit plan
may state the highest fee or rate along with an indication lower
fees or rates could be imposed. For example, a phrase indicating the
late payment fee could be ``up to $8'' complies with this
requirement.
5. Penalty rate in effect. If the highest penalty rate has
previously been triggered on an account, the card issuer may, but is
not required to, delete the amount of the penalty rate and the
warning that the rate may be imposed for an untimely payment, as not
applicable. Alternatively, the card issuer may, but is not required
to, modify the language to indicate that the penalty rate has been
increased due to previous late payments (if applicable).
6. Same day each month. The requirement that the due date be the
same day each month means that the due date must generally be the
same numerical date. For example, a consumer's due date could be the
25th of every month. In contrast, a due date that is the same
relative date but not numerical date each month, such as the third
Tuesday of the month, generally would not comply with this
requirement. However, a consumer's due date may be the last day of
each month, even though that date will not be the same numerical
date. For example, if a consumer's due date is the last day of each
month, it will fall on February 28th (or February 29th in a leap
year) and on August 31st.
7. Change in due date. A creditor may adjust a consumer's due
date from time to time provided that the new due date will be the
same numerical date each month on an ongoing basis. For example, a
creditor may choose to honor a consumer's request to change from a
due date that is the 20th of each month to the 5th of each month, or
may choose to change a consumer's due date from time to time for
operational reasons. See comment 2(a)(4)-3 for guidance on
transitional billing cycles.
8. Billing cycles longer than one month. The requirement that
the due date be the same day each month does not prohibit billing
cycles that are two or three months, provided that the due date for
each billing cycle is on the same numerical date of the month. For
example, a creditor that establishes two-month billing cycles could
send a consumer periodic statements disclosing due dates of January
25, March 25, and May 25.
9. Payment due date when the creditor does not accept or receive
payments by mail. If the due date in a given month falls on a day on
which the creditor does not receive or accept payments by mail and
the creditor is required to treat a payment received the next
business day as timely pursuant to Sec. 1026.10(d), the creditor
must disclose the due date according to the legal obligation between
the parties, not the date as of which the creditor is permitted to
treat the payment as late. For example, assume that the consumer's
due date is the 4th of every month, and the creditor does not accept
or receive payments by mail on Thursday, July 4. Pursuant to Sec.
1026.10(d), the creditor may not treat a mailed payment received on
the following business day, Friday, July 5, as late for any purpose.
The creditor must nonetheless disclose July 4 as the due date on the
periodic statement and may not disclose a July 5 due date.
* * * * *
Section 1026.52--Limitations on Fees
52(a) Limitations During First Year After Account Opening
52(a)(1) General Rule
1. Application. The 25 percent limit in Sec. 1026.52(a)(1)
applies to fees that the card issuer charges to the account as well
as to fees that the card issuer requires the consumer to pay with
respect to the account through other means (such as through a
payment from the consumer's asset account, including a prepaid
account as defined in Sec. 1026.61, to the card issuer or from
another credit account provided by the card issuer). For example:
i. Assume that, under the terms of a credit card account, a
consumer is required to pay $120 in fees for the issuance or
availability of credit at account opening. The consumer is also
required to pay a cash advance fee that is equal to five percent of
the cash advance and a late payment fee of $8 if the required
minimum periodic payment is not received by the payment due date
(which is the twenty-fifth of the month). At account opening on
January 1 of year one, the credit limit for the account is $500.
Section 1026.52(a)(1) permits the card issuer to charge to the
account the $120 in fees for the issuance or availability of credit
at account opening. On February 1 of year one, the consumer uses the
account for a $100 cash advance. Section 1026.52(a)(1) permits the
card issuer to charge a $5 cash-advance fee to the account. On March
26 of year one, the card issuer has not received the consumer's
required minimum periodic payment. Section 1026.52(a)(2) permits the
card issuer to charge a $8 late payment fee to the account. On July
15 of year one, the consumer uses the account for a $50 cash
advance. Section 1026.52(a)(1) does not permit the card issuer to
charge a $2.50 cash advance fee to the account. Furthermore, Sec.
1026.52(a)(1) prohibits the card issuer from collecting the $2.50
cash advance fee from the consumer by other means.
ii. Assume that, under the terms of a credit card account, a
consumer is required to pay $125 in fees for the issuance or
availability of credit during the first year after account opening.
At account opening on January 1 of year one, the credit limit for
the account is $500. Section 1026.52(a)(1) permits the card issuer
to charge the $125 in fees to the account. However, Sec.
1026.52(a)(1) prohibits the card issuer from requiring the consumer
to make payments to the card issuer for additional non-exempt fees
with respect to the account during the first year after account
opening. Section 1026.52(a)(1) also prohibits the card issuer from
requiring the consumer to open a separate credit account with the
card issuer to fund the payment of additional non-exempt fees during
the first year after the credit card account is opened.
iii. Assume that a consumer opens a prepaid account accessed by
a prepaid card on January 1 of year one and opens a covered separate
credit feature accessible by a hybrid prepaid-credit card as defined
by Sec. 1026.61 that is a credit card account under an open-end
(not home-secured) consumer credit plan on March 1 of year one.
Assume that, under the terms of the covered separate credit feature
accessible by the hybrid prepaid-credit card, a consumer is required
to pay $50 in fees for the issuance or availability of credit at
account opening. At credit account opening on March 1 of year one,
the credit limit for the account is $200. Section 1026.52(a)(1)
permits the card issuer to charge the $50 in fees to the credit
account. However, Sec. 1026.52(a)(1) prohibits the card issuer from
requiring the consumer to make
[[Page 18943]]
payments to the card issuer for additional non-exempt fees with
respect to the credit account during the first year after account
opening. Section 1026.52(a)(1) also prohibits the card issuer from
requiring the consumer to open an additional credit feature with the
card issuer to fund the payment of additional non-exempt fees during
the first year after the covered separate credit feature is opened.
iv. Assume that a consumer opens a prepaid account accessed by a
prepaid card on January 1 of year one and opens a covered separate
credit feature accessible by a hybrid prepaid-credit card as defined
in Sec. 1026.61 that is a credit card account under an open-end
(not home-secured) consumer credit plan on March 1 of year one.
Assume that, under the terms of the covered separate credit feature
accessible by the hybrid prepaid-credit card, a consumer is required
to pay $120 in fees for the issuance or availability of credit at
account opening. The consumer is also required to pay a cash advance
fee that is equal to 5 percent of any cash advance and a late
payment fee of $8 if the required minimum periodic payment is not
received by the payment due date (which is the 25th of the month).
At credit account opening on March 1 of year one, the credit limit
for the account is $500. Section 1026.52(a)(1) permits the card
issuer to charge to the account the $120 in fees for the issuance or
availability of credit at account opening. On April 1 of year one,
the consumer uses the account for a $100 cash advance. Section
1026.52(a)(1) permits the card issuer to charge a $5 cash advance
fee to the account. On April 26 of year one, the card issuer has not
received the consumer's required minimum periodic payment. Section
1026.52(a)(2) permits the card issuer to charge a $8 late payment
fee to the account. On July 15 of year one, the consumer uses the
account for a $50 cash advance. Section 1026.52(a)(1) does not
permit the card issuer to charge a $2.50 cash advance fee to the
account, because the total amount of non-exempt fees reached the 25
percent limit with the $5 cash advance fee on April 1 (the $8 late
fee on April 26 is exempt pursuant to Sec. 1026.52(a)(2)(i)).
Furthermore, Sec. 1026.52(a)(1) prohibits the card issuer from
collecting the $2.50 cash advance fee from the consumer by other
means.
2. Fees that exceed 25 percent limit. A card issuer that charges
a fee to a credit card account that exceeds the 25 percent limit
complies with Sec. 1026.52(a)(1) if the card issuer waives or
removes the fee and any associated interest charges or credits the
account for an amount equal to the fee and any associated interest
charges within a reasonable amount of time but no later than the end
of the billing cycle following the billing cycle during which the
fee was charged. For example, assuming the facts in the example in
comment 52(a)(1)-1.i above, the card issuer complies with Sec.
1026.52(a)(1) if the card issuer charged the $2.50 cash advance fee
to the account on July 15 of year one but waived or removed the fee
or credited the account for $2.50 (plus any interest charges on that
$2.50) at the end of the billing cycle.
3. Changes in credit limit during first year.
i. Increases in credit limit. If a card issuer increases the
credit limit during the first year after the account is opened,
Sec. 1026.52(a)(1) does not permit the card issuer to require the
consumer to pay additional fees that would otherwise be prohibited
(such as a fee for increasing the credit limit). For example, assume
that, at account opening on January 1, the credit limit for a credit
card account is $400 and the consumer is required to pay $100 in
fees for the issuance or availability of credit. On July 1, the card
issuer increases the credit limit for the account to $600. Section
1026.52(a)(1) does not permit the card issuer to require the
consumer to pay additional fees based on the increased credit limit.
ii. Decreases in credit limit. If a card issuer decreases the
credit limit during the first year after the account is opened,
Sec. 1026.52(a)(1) requires the card issuer to waive or remove any
fees charged to the account that exceed 25 percent of the reduced
credit limit or to credit the account for an amount equal to any
fees the consumer was required to pay with respect to the account
that exceed 25 percent of the reduced credit limit within a
reasonable amount of time but no later than the end of the billing
cycle following the billing cycle during which the credit limit was
reduced. For example, assume that, at account opening on January 1,
the credit limit for a credit card account is $1,000 and the
consumer is required to pay $250 in fees for the issuance or
availability of credit. The billing cycles for the account begin on
the first day of the month and end on the last day of the month. On
July 30, the card issuer decreases the credit limit for the account
to $600. Section 1026.52(a)(1) requires the card issuer to waive or
remove $100 in fees from the account or to credit the account for an
amount equal to $100 within a reasonable amount of time but no later
than August 31.
4. Date on which account may first be used by consumer to engage
in transactions.
i. Methods of compliance. For purposes of Sec. 1026.52(a)(1),
an account is considered open no earlier than the date on which the
account may first be used by the consumer to engage in transactions.
A card issuer may consider an account open for purposes of Sec.
1026.52(a)(1) on any of the following dates:
A. The date the account is first used by the consumer for a
transaction (such as when an account is established in connection
with financing the purchase of goods or services).
B. The date the consumer complies with any reasonable activation
procedures imposed by the card issuer for preventing fraud or
unauthorized use of a new account (such as requiring the consumer to
provide information that verifies his or her identity), provided
that the account may be used for transactions on that date.
C. The date that is seven days after the card issuer mails or
delivers to the consumer account-opening disclosures that comply
with Sec. 1026.6, provided that the consumer may use the account
for transactions after complying with any reasonable activation
procedures imposed by the card issuer for preventing fraud or
unauthorized use of the new account (such as requiring the consumer
to provide information that verifies his or her identity). If a card
issuer has reasonable procedures designed to ensure that account-
opening disclosures that comply with Sec. 1026.6 are mailed or
delivered to consumers no later than a certain number of days after
the card issuer establishes the account, the card issuer may add
that number of days to the seven-day period for purposes of
determining the date on which the account was opened.
ii. Examples. A. Assume that, on July 1 of year one, a credit
card account under an open-end (not home-secured) consumer credit
plan is established in connection with financing the purchase of
goods or services and a $500 transaction is charged to the account
by the consumer. The card issuer may consider the account open on
July 1 of year one for purposes of Sec. 1026.52(a)(1). Accordingly,
Sec. 1026.52(a)(1) ceases to apply to the account on July 1 of year
two.
B. Assume that, on July 1 of year one, a card issuer approves a
consumer's application for a credit card account under an open-end
(not home-secured) consumer credit plan and establishes the account
on its internal systems. On July 5, the card issuer mails or
delivers to the consumer account-opening disclosures that comply
with Sec. 1026.6. If the consumer may use the account for
transactions on the date the consumer complies with any reasonable
procedures imposed by the card issuer for preventing fraud or
unauthorized use, the card issuer may consider the account open on
July 12 of year one for purposes of Sec. 1026.52(a)(1).
Accordingly, Sec. 1026.52(a)(1) ceases to apply to the account on
July 12 of year two.
C. Same facts as in paragraph B above except that the card
issuer has adopted reasonable procedures designed to ensure that
account-opening disclosures that comply with Sec. 1026.6 are mailed
or delivered to consumers no later than three days after an account
is established on its systems. If the consumer may use the account
for transactions on the date the consumer complies with any
reasonable procedures imposed by the card issuer for preventing
fraud or unauthorized use, the card issuer may consider the account
open on July 11 of year one for purposes of Sec. 1026.52(a)(1).
Accordingly, Sec. 1026.52(a)(1) ceases to apply to the account on
July 11 of year two. However, if the consumer uses the account for a
transaction or complies with the card issuer's reasonable procedures
for preventing fraud or unauthorized use on July 8 of year one, the
card issuer may, at its option, consider the account open on that
date for purposes of Sec. 1026.52(a)(1) and Sec. 1026.52(a)(1)
therefore ceases to apply to the account on July 8 of year two.
* * * * *
52(b) Limitations on Penalty Fees
1. Fees for violating the account terms or other requirements.
For purposes of Sec. 1026.52(b), a fee includes any charge imposed
by a card issuer based on an act or omission that violates the terms
of the account or any other requirements imposed by the card issuer
with respect to the account, other than charges attributable to
periodic interest rates. Accordingly, for purposes of Sec.
1026.52(b), a fee does not include charges attributable to an
increase in an annual percentage rate based on an act or
[[Page 18944]]
omission that violates the terms or other requirements of an
account.
i. The following are examples of fees that are subject to the
limitations in Sec. 1026.52(b) or are prohibited by Sec.
1026.52(b):
A. Late payment fees and any other fees imposed by a card issuer
if an account becomes delinquent or if a payment is not received by
a particular date. A late payment fee or late fee is any fee imposed
for a late payment. See Sec. 1026.60(b)(9) and accompanying
commentary.
B. Returned payment fees and any other fees imposed by a card
issuer if a payment received via check, automated clearing house, or
other payment method is returned.
C. Any fee or charge for an over-the-limit transaction as
defined in Sec. 1026.56(a), to the extent the imposition of such a
fee or charge is permitted by Sec. 1026.56.
D. Any fee imposed by a card issuer if payment on a check that
accesses a credit card account is declined.
E. Any fee or charge for a transaction that the card issuer
declines to authorize. See Sec. 1026.52(b)(2)(i)(B).
F. Any fee imposed by a card issuer based on account inactivity
(including the consumer's failure to use the account for a
particular number or dollar amount of transactions or a particular
type of transaction). See Sec. 1026.52(b)(2)(i)(B).
G. Any fee imposed by a card issuer based on the closure or
termination of an account. See Sec. 1026.52(b)(2)(i)(B).
ii. The following are examples of fees to which Sec. 1026.52(b)
does not apply:
A. Balance transfer fees.
B. Cash advance fees.
C. Foreign transaction fees.
D. Annual fees and other fees for the issuance or availability
of credit described in Sec. 1026.60(b)(2), except to the extent
that such fees are based on account inactivity. See Sec.
1026.52(b)(2)(i)(B).
E. Fees for insurance described in Sec. 1026.4(b)(7) or debt
cancellation or debt suspension coverage described in Sec.
1026.4(b)(10) written in connection with a credit transaction,
provided that such fees are not imposed as a result of a violation
of the account terms or other requirements of an account.
F. Fees for making an expedited payment (to the extent permitted
by Sec. 1026.10(e)).
G. Fees for optional services (such as travel insurance).
H. Fees for reissuing a lost or stolen card.
2. Rounding to nearest whole dollar. A card issuer may round any
fee that complies with Sec. 1026.52(b) to the nearest whole dollar.
For example, if Sec. 1026.52(b) permits a card issuer to impose a
late payment fee of $5.50, the card issuer may round that amount up
to the nearest whole dollar and impose a late payment fee of $6.
However, if the late payment fee permitted by Sec. 1026.52(b) were
$5.49, the card issuer would not be permitted to round that amount
up to $6, although the card issuer could round that amount down and
impose a late payment fee of $5.
3. Fees in connection with covered separate credit features
accessible by hybrid prepaid-credit cards. With regard to a covered
separate credit feature and an asset feature on a prepaid account
that are both accessible by a hybrid prepaid-credit card as defined
in Sec. 1026.61 where the credit feature is a credit card account
under an open-end (not home-secured) consumer credit plan, Sec.
1026.52(b) applies to any fee for violating the terms or other
requirements of the credit feature, regardless of whether those fees
are imposed on the credit feature or on the asset feature of the
prepaid account. For example, assume that a late fee will be imposed
by the card issuer if the covered separate credit feature becomes
delinquent or if a payment is not received by a particular date.
This fee is subject to Sec. 1026.52(b) regardless of whether the
fee is imposed on the asset feature of the prepaid account or on the
separate credit feature.
4. Fees imposed on the asset feature of a prepaid account that
are not charges imposed as part of the plan. Section 1026.52(b) does
not apply to any fee or charge imposed on the asset feature of the
prepaid account that is not a charge imposed as part of the plan
under Sec. 1026.6(b)(3). See Sec. 1026.6(b)(3)(iii)(D) and (E) and
related commentary regarding fees imposed on the asset feature
prepaid account that are not charges imposed as part of the plan
under Sec. 1026.6(b)(3) with respect to covered separate credit
features accessible by hybrid prepaid-credit cards and non-covered
separate credit features as those terms are defined in Sec.
1026.61.
5. Examples. Any dollar amount examples in the commentary to
Sec. 1026.52(b) relating to the safe harbors in Sec. 1026.52(b)(1)
are based on the original historical safe-harbor thresholds of $25
and $35 for penalty fees other than late fees, and on the threshold
of $8 for late fees.
52(b)(1) General Rule
1. Relationship between Sec. 1026.52(b)(1)(i), (b)(1)(ii), and
(b)(2).
i. Relationship between Sec. 1026.52(b)(1)(i) and (b)(1)(ii). A
card issuer may impose a fee for violating the terms or other
requirements of an account pursuant to either Sec. 1026.52(b)(1)(i)
or (b)(1)(ii).
A. A card issuer that complies with the safe harbors in Sec.
1026.52(b)(1)(ii) is not required to determine that its fees
represent a reasonable proportion of the total costs incurred by the
card issuer as a result of a type of violation under Sec.
1026.52(b)(1)(i).
B. A card issuer may impose a fee for one type of violation
pursuant to Sec. 1026.52(b)(1)(i) and may impose a fee for a
different type of violation pursuant to Sec. 1026.52(b)(1)(ii). For
example, a card issuer may impose a late payment fee of $9 based on
a cost determination pursuant to Sec. 1026.52(b)(1)(i) but impose
returned payment and over-the-limit fees of $25 or $35 pursuant to
the safe harbors in Sec. 1026.52(b)(1)(ii).
C. A card issuer that previously based the amount of a penalty
fee for a particular type of violation on a cost determination
pursuant to Sec. 1026.52(b)(1)(i) may begin to impose a penalty fee
for that type of violation that is consistent with Sec.
1026.52(b)(1)(ii) at any time (subject to the notice requirements in
Sec. 1026.9), provided that the first fee imposed pursuant to Sec.
1026.52(b)(1)(ii) is consistent with Sec. 1026.52(b)(1)(ii)(A). For
example, assume that consistent with Sec. 1026.56, a consumer has
affirmatively consented to the payment of transactions that exceed
the credit limit. A transaction occurs on January 15 that causes the
account balance to exceed the credit limit and, based on a cost
determination pursuant to Sec. 1026.52(b)(1)(i), the card issuer
imposes a $30 over-the-limit fee. The consumer's next monthly
payment brings the account balance below the credit limit. On July
15, another transaction causes the account balance to exceed the
credit limit. The card issuer may impose another $30 over-the-limit
fee pursuant to Sec. 1026.52(b)(1)(i) or may impose a $25 over-the-
limit fee pursuant to Sec. 1026.52(b)(1)(ii)(A). However, the card
issuer may not impose a $35 over-the-limit fee pursuant to Sec.
1026.52(b)(1)(ii)(B). If the card issuer imposes a $25 fee pursuant
to Sec. 1026.52(b)(1)(ii)(A) for the July 15 over-the-limit
transaction and on September 15 another transaction causes the
account balance to exceed the credit limit, the card issuer may
impose a $35 fee for the September 15 over-the-limit transaction
pursuant to Sec. 1026.52(b)(1)(ii)(B).
ii. Relationship between Sec. 1026.52(b)(1) and (b)(2). Section
1026.52(b)(1) does not permit a card issuer to impose a fee that is
inconsistent with the prohibitions in Sec. 1026.52(b)(2). For
example, if Sec. 1026.52(b)(2)(i) prohibits the card issuer from
imposing a late payment fee that exceeds $7, Sec. 1026.52(b)(1)(ii)
does not permit the card issuer to impose a higher late payment fee.
52(b)(1)(i) Fees Based on Costs
1. Costs incurred as a result of violations. Section
1026.52(b)(1)(i) does not require a card issuer to base a fee on the
costs incurred as a result of a specific violation of the terms or
other requirements of an account. Instead, for purposes of Sec.
1026.52(b)(1)(i), a card issuer must have determined that a fee for
violating the terms or other requirements of an account represents a
reasonable proportion of the costs incurred by the card issuer as a
result of that type of violation. A card issuer may make a single
determination for all of its credit card portfolios or may make
separate determinations for each portfolio. The factors relevant to
this determination include:
i. The number of violations of a particular type experienced by
the card issuer during a prior period of reasonable length (for
example, a period of twelve months).
ii. The costs incurred by the card issuer during that period as
a result of those violations.
iii. At the card issuer's option, the number of fees imposed by
the card issuer as a result of those violations during that period
that the card issuer reasonably estimates it will be unable to
collect. See comment 52(b)(1)(i)-5.
iv. At the card issuer's option, reasonable estimates for an
upcoming period of changes in the number of violations of that type,
the resulting costs, and the number of fees that the card issuer
will be unable to collect. See illustrative examples in comments
52(b)(1)(i)-6 through -9.
2. Amounts excluded from cost analysis. The following amounts
are not costs incurred by a card issuer as a result of violations of
[[Page 18945]]
the terms or other requirements of an account for purposes of Sec.
1026.52(b)(1)(i):
i. Losses and associated costs (including the cost of holding
reserves against potential losses, the cost of funding delinquent
accounts, and any collection costs that are incurred after an
account is charged off in accordance with loan-loss provisions).
ii. Costs associated with evaluating whether consumers who have
not violated the terms or other requirements of an account are
likely to do so in the future (such as the costs associated with
underwriting new accounts). However, once a violation of the terms
or other requirements of an account has occurred, the costs
associated with preventing additional violations for a reasonable
period of time are costs incurred by a card issuer as a result of
violations of the terms or other requirements of an account for
purposes of Sec. 1026.52(b)(1)(i).
3. Third-party charges. As a general matter, amounts charged to
the card issuer by a third party as a result of a violation of the
terms or other requirements of an account are costs incurred by the
card issuer for purposes of Sec. 1026.52(b)(1)(i). For example, if
a card issuer is charged a specific amount by a third party for each
returned payment, that amount is a cost incurred by the card issuer
as a result of returned payments. However, if the amount is charged
to the card issuer by an affiliate or subsidiary of the card issuer,
the card issuer must have determined that the charge represents a
reasonable proportion of the costs incurred by the affiliate or
subsidiary as a result of the type of violation. For example, if an
affiliate of a card issuer provides collection services to the card
issuer on delinquent accounts, the card issuer must have determined
that the amounts charged to the card issuer by the affiliate for
such services represent a reasonable proportion of the costs
incurred by the affiliate as a result of late payments.
4. Amounts charged by other card issuers. The fact that a card
issuer's fees for violating the terms or other requirements of an
account are comparable to fees assessed by other card issuers does
not satisfy the requirements of Sec. 1026.52(b)(1)(i).
5. Uncollected fees. For purposes of Sec. 1026.52(b)(1)(i), a
card issuer may consider fees that it is unable to collect when
determining the appropriate fee amount. Fees that the card issuer is
unable to collect include fees imposed on accounts that have been
charged off by the card issuer, fees that have been discharged in
bankruptcy, and fees that the card issuer is required to waive in
order to comply with a legal requirement (such as a requirement
imposed by 12 CFR part 1026 or 50 U.S.C. app. 527). However, fees
that the card issuer chooses not to impose or chooses not to collect
(such as fees the card issuer chooses to waive at the request of the
consumer or under a workout or temporary hardship arrangement) are
not relevant for purposes of this determination. See illustrative
examples in comments 52(b)(2)(i)-6 through -9.
6. Late payment fees.
i. Costs incurred as a result of late payments. For purposes of
Sec. 1026.52(b)(1)(i), the costs incurred by a card issuer as a
result of late payments include the costs associated with the
collection of late payments, such as the costs associated with
notifying consumers of delinquencies and resolving delinquencies
(including the establishment of workout and temporary hardship
arrangements).
ii. Examples. A. Late payment fee based on past delinquencies
and costs. Assume that, during year one, a card issuer experienced 1
million delinquencies and incurred $26 million in costs as a result
of those delinquencies. For purposes of Sec. 1026.52(b)(1)(i), a
$26 late payment fee would represent a reasonable proportion of the
total costs incurred by the card issuer as a result of late payments
during year two.
B. Adjustment based on fees card issuer is unable to collect.
Same facts as above except that the card issuer imposed a late
payment fee for each of the 1 million delinquencies experienced
during year one but was unable to collect 25% of those fees (in
other words, the card issuer was unable to collect 250,000 fees,
leaving a total of 750,000 late payments for which the card issuer
did collect or could have collected a fee). For purposes of Sec.
1026.52(b)(2)(i), a late payment fee of $35 would represent a
reasonable proportion of the total costs incurred by the card issuer
as a result of late payments during year two.
C. Adjustment based on reasonable estimate of future changes.
Same facts as paragraphs A and B above except the card issuer
reasonably estimates that--based on past delinquency rates and other
factors relevant to potential delinquency rates for year two--it
will experience a 2% decrease in delinquencies during year two (in
other words, 20,000 fewer delinquencies for a total of 980,000). The
card issuer also reasonably estimates that it will be unable to
collect the same percentage of fees (25%) during year two as during
year one (in other words, the card issuer will be unable to collect
245,000 fees, leaving a total of 735,000 late payments for which the
card issuer will be able to collect a fee). The card issuer also
reasonably estimates that--based on past changes in costs incurred
as a result of delinquencies and other factors relevant to potential
costs for year two--it will experience a 5% increase in costs during
year two (in other words, $1.3 million in additional costs for a
total of $27.3 million). For purposes of Sec. 1026.52(b)(1)(i), a
$37 late payment fee would represent a reasonable proportion of the
total costs incurred by the card issuer as a result of late payments
during year two.
7. Returned payment fees.
i. Costs incurred as a result of returned payments. For purposes
of Sec. 1026.52(b)(1)(i), the costs incurred by a card issuer as a
result of returned payments include:
A. Costs associated with processing returned payments and
reconciling the card issuer's systems and accounts to reflect
returned payments;
B. Costs associated with investigating potential fraud with
respect to returned payments; and
C. Costs associated with notifying the consumer of the returned
payment and arranging for a new payment.
ii. Examples. A. Returned payment fee based on past returns and
costs. Assume that, during year one, a card issuer experienced
150,000 returned payments and incurred $3.1 million in costs as a
result of those returned payments. For purposes of Sec.
1026.52(b)(1)(i), a $21 returned payment fee would represent a
reasonable proportion of the total costs incurred by the card issuer
as a result of returned payments during year two.
B. Adjustment based on fees card issuer is unable to collect.
Same facts as above except that the card issuer imposed a returned
payment fee for each of the 150,000 returned payments experienced
during year one but was unable to collect 15% of those fees (in
other words, the card issuer was unable to collect 22,500 fees,
leaving a total of 127,500 returned payments for which the card
issuer did collect or could have collected a fee). For purposes of
Sec. 1026.52(b)(2)(i), a returned payment fee of $24 would
represent a reasonable proportion of the total costs incurred by the
card issuer as a result of returned payments during year two.
C. Adjustment based on reasonable estimate of future changes.
Same facts as paragraphs A and B above except the card issuer
reasonably estimates that--based on past returned payment rates and
other factors relevant to potential returned payment rates for year
two--it will experience a 2% increase in returned payments during
year two (in other words, 3,000 additional returned payments for a
total of 153,000). The card issuer also reasonably estimates that it
will be unable to collect 25% of returned payment fees during year
two (in other words, the card issuer will be unable to collect
38,250 fees, leaving a total of 114,750 returned payments for which
the card issuer will be able to collect a fee). The card issuer also
reasonably estimates that--based on past changes in costs incurred
as a result of returned payments and other factors relevant to
potential costs for year two--it will experience a 1% decrease in
costs during year two (in other words, a $31,000 reduction in costs
for a total of $3.069 million). For purposes of Sec.
1026.52(b)(1)(i), a $27 returned payment fee would represent a
reasonable proportion of the total costs incurred by the card issuer
as a result of returned payments during year two.
8. Over-the-limit fees.
i. Costs incurred as a result of over-the-limit transactions.
For purposes of Sec. 1026.52(b)(1)(i), the costs incurred by a card
issuer as a result of over-the-limit transactions include:
A. Costs associated with determining whether to authorize over-
the-limit transactions; and
B. Costs associated with notifying the consumer that the credit
limit has been exceeded and arranging for payments to reduce the
balance below the credit limit.
ii. Costs not incurred as a result of over-the-limit
transactions. For purposes of Sec. 1026.52(b)(1)(i), costs
associated with obtaining the affirmative consent of consumers to
the card issuer's payment of transactions that exceed the credit
limit consistent with Sec. 1026.56 are not costs incurred by a card
issuer as a result of over-the-limit transactions.
iii. Examples. A. Over-the-limit fee based on past fees and
costs. Assume that, during
[[Page 18946]]
year one, a card issuer authorized 600,000 over-the-limit
transactions and incurred $4.5 million in costs as a result of those
over-the-limit transactions. However, because of the affirmative
consent requirements in Sec. 1026.56, the card issuer was only
permitted to impose 200,000 over-the-limit fees during year one. For
purposes of Sec. 1026.52(b)(1)(i), a $23 over-the-limit fee would
represent a reasonable proportion of the total costs incurred by the
card issuer as a result of over-the-limit transactions during year
two.
B. Adjustment based on fees card issuer is unable to collect.
Same facts as above except that the card issuer was unable to
collect 30% of the 200,000 over-the-limit fees imposed during year
one (in other words, the card issuer was unable to collect 60,000
fees, leaving a total of 140,000 over-the-limit transactions for
which the card issuer did collect or could have collected a fee).
For purposes of Sec. 1026.52(b)(2)(i), an over-the-limit fee of $32
would represent a reasonable proportion of the total costs incurred
by the card issuer as a result of over-the-limit transactions during
year two.
C. Adjustment based on reasonable estimate of future changes.
Same facts as paragraphs A and B above except the card issuer
reasonably estimates that--based on past over-the-limit transaction
rates, the percentages of over-the-limit transactions that resulted
in an over-the-limit fee in the past (consistent with Sec.
1026.56), and factors relevant to potential changes in those rates
and percentages for year two--it will authorize approximately the
same number of over-the-limit transactions during year two (600,000)
and impose approximately the same number of over-the-limit fees
(200,000). The card issuer also reasonably estimates that it will be
unable to collect the same percentage of fees (30%) during year two
as during year one (in other words, the card issuer was unable to
collect 60,000 fees, leaving a total of 140,000 over-the-limit
transactions for which the card issuer will be able to collect a
fee). The card issuer also reasonably estimates that--based on past
changes in costs incurred as a result of over-the-limit transactions
and other factors relevant to potential costs for year two--it will
experience a 6% decrease in costs during year two (in other words, a
$270,000 reduction in costs for a total of $4.23 million). For
purposes of Sec. 1026.52(b)(1)(i), a $30 over-the-limit fee would
represent a reasonable proportion of the total costs incurred by the
card issuer as a result of over-the-limit transactions during year
two.
9. Declined access check fees.
i. Costs incurred as a result of declined access checks. For
purposes of Sec. 1026.52(b)(1)(i), the costs incurred by a card
issuer as a result of declining payment on a check that accesses a
credit card account include:
A. Costs associated with determining whether to decline payment
on access checks;
B. Costs associated with processing declined access checks and
reconciling the card issuer's systems and accounts to reflect
declined access checks;
C. Costs associated with investigating potential fraud with
respect to declined access checks; and
D. Costs associated with notifying the consumer and the merchant
or other party that accepted the access check that payment on the
check has been declined.
ii. Example. Assume that, during year one, a card issuer
declined 100,000 access checks and incurred $2 million in costs as a
result of those declined checks. The card issuer imposed a fee for
each declined access check but was unable to collect 10% of those
fees (in other words, the card issuer was unable to collect 10,000
fees, leaving a total of 90,000 declined access checks for which the
card issuer did collect or could have collected a fee). For purposes
of Sec. 1026.52(b)(1)(i), a $22 declined access check fee would
represent a reasonable proportion of the total costs incurred by the
card issuer as a result of declined access checks during year two.
52(b)(1)(ii) Safe Harbors
1. Multiple violations of same type.
i. Same billing cycle or next six billing cycles. A card issuer
cannot impose a late fee in excess of $8 pursuant to Sec.
1026.52(b)(1)(ii), regardless of whether the card issuer has imposed
a late fee within the six previous billing cycles. For all other
penalty fees, a card issuer cannot impose a fee for a violation
pursuant to Sec. 1026.52(b)(1)(ii)(B) unless a fee has previously
been imposed for the same type of violation pursuant to Sec.
1026.52(b)(1)(ii)(A). Once a fee has been imposed for a violation
pursuant to Sec. 1026.52(b)(1)(ii)(A), the card issuer may impose a
fee pursuant to Sec. 1026.52(b)(1)(ii)(B) for any subsequent
violation of the same type until that type of violation has not
occurred for a period of six consecutive complete billing cycles. A
fee has been imposed for purposes of Sec. 1026.52(b)(1)(ii) even if
the card issuer waives or rebates all or part of the fee.
A. Late payments. For purposes of Sec. 1026.52(b)(1)(ii), a
late payment occurs during the billing cycle in which the payment
may first be treated as late consistent with the requirements of
this part and the terms or other requirements of the account.
B. Returned payments. For purposes of Sec. 1026.52(b)(1)(ii), a
returned payment occurs during the billing cycle in which the
payment is returned to the card issuer.
C. Transactions that exceed the credit limit. For purposes of
Sec. 1026.52(b)(1)(ii), a transaction that exceeds the credit limit
for an account occurs during the billing cycle in which the
transaction occurs or is authorized by the card issuer.
D. Declined access checks. For purposes of Sec.
1026.52(b)(1)(ii), a check that accesses a credit card account is
declined during the billing cycle in which the card issuer declines
payment on the check.
ii. Relationship to Sec. Sec. 1026.52(b)(2)(ii) and
1026.56(j)(1). If multiple violations are based on the same event or
transaction such that Sec. 1026.52(b)(2)(ii) prohibits the card
issuer from imposing more than one fee, the event or transaction
constitutes a single violation for purposes of Sec.
1026.52(b)(1)(ii). Furthermore, consistent with Sec.
1026.56(j)(1)(i), no more than one violation for exceeding an
account's credit limit can occur during a single billing cycle for
purposes of Sec. 1026.52(b)(1)(ii). However, Sec.
1026.52(b)(2)(ii) does not prohibit a card issuer from imposing fees
for exceeding the credit limit in consecutive billing cycles based
on the same over-the-limit transaction to the extent permitted by
Sec. 1026.56(j)(1). In these circumstances, the second and third
over-the-limit fees permitted by Sec. 1026.56(j)(1) may be imposed
pursuant to Sec. 1026.52(b)(1)(ii)(B). See comment 52(b)(2)(ii)-1.
iii. Examples. The following examples illustrate the application
of Sec. 1026.52(b)(1)(ii), (b)(1)(ii)(A), and (b)(1)(ii)(B) with
respect to credit card accounts under an open-end (not home-secured)
consumer credit plan that are not charge card accounts. For purposes
of these examples, assume that the billing cycles for the account
begin on the first day of the month and end on the last day of the
month and that the payment due date for the account is the twenty-
fifth day of the month.
A. Violations of same type (over the credit limit). Consistent
with Sec. 1026.56, the consumer has affirmatively consented to the
payment of transactions that exceed the credit limit. On March 20, a
transaction causes the account balance to increase to $1,150, which
exceeds the account's $1,000 credit limit. Consistent with Sec.
1026.52(b)(1)(ii)(A), the card issuer imposes a $25 over-the-limit
fee for the March billing cycle. The card issuer receives a $300
payment on March 25, bringing the account below the credit limit. In
order for the card issuer to impose a $35 over-the-limit fee
pursuant to Sec. 1026.52(b)(1)(ii)(B), a second over-the-limit
transaction must occur during the April, May, June, July, August, or
September billing cycles.
1. Same facts as above. On April 20, a transaction causes the
account balance to increase to $1,200, which exceeds the account's
$1,000 credit limit. Consistent with Sec. 1026.52(b)(1)(ii)(B), the
card issuer may impose a $35 over-the-limit fee for the April
billing cycle. Furthermore, the card issuer may impose a $35 over-
the-limit payment fee for any over-the-limit transaction or event
that triggers an over-the-limit fee that occurs during the May,
June, July, August, September, or October billing cycles, subject to
the limitations in Sec. 1026.56(j)(1).
2. Same facts as in paragraph A above. The account remains below
the limit from March 25 until October 20, when a transaction causes
the account balance to exceed the credit limit. However, because
this over-the-limit transaction did not occur during the six billing
cycles following the March billing cycle, Sec. 1026.52(b)(1)(ii)
only permits the card issuer to impose an over-the-limit fee of $25.
B. Violations of different types (late payment and over the
credit limit). The credit limit for an account is $1,000. Consistent
with Sec. 1026.56, the consumer has affirmatively consented to the
payment of transactions that exceed the credit limit. A required
minimum periodic payment of $35 is due on August 25. On August 26, a
late payment has occurred because no payment has been received.
Accordingly, consistent with Sec. 1026.52(b)(1)(ii), the card
issuer imposes a $8 late payment fee on August 26.
[[Page 18947]]
On August 30, the card issuer receives a $35 payment. On September
10, a transaction causes the account balance to increase to $1,150,
which exceeds the account's $1,000 credit limit. On September 11, a
second transaction increases the account balance to $1,350. On
September 23, the card issuer receives the $50 required minimum
periodic payment due on September 25, which reduces the account
balance to $1,300. On September 30, the card issuer imposes a $25
over-the-limit fee, consistent with Sec. 1026.52(b)(1)(ii)(A). On
October 26, a late payment has occurred because the $60 required
minimum periodic payment due on October 25 has not been received.
Accordingly, consistent with Sec. 1026.52(b)(1)(ii) the card issuer
imposes a $8 late payment fee on October 26.
C. Violations of different types (late payment and returned
payment). A required minimum periodic payment of $40 is due on July
25. On July 26, a late payment has occurred because no payment has
been received. Accordingly, consistent with Sec. 1026.52(b)(1)(ii),
the card issuer imposes a $8 late payment fee on July 26. On July
30, the card issuer receives a $60 payment. A required minimum
periodic payment of $40 is due on August 25. On August 24, a $40
payment is received. On August 27, the $40 payment is returned to
the card issuer for insufficient funds. In these circumstances,
Sec. 1026.52(b)(2)(ii) permits the card issuer to impose either a
late payment fee or a returned payment fee but not both, because the
late payment and the returned payment result from the same event or
transaction. Accordingly, for purposes of Sec. 1026.52(b)(1)(ii),
the event or transaction constitutes a single violation. However, if
the card issuer imposes a late payment fee, Sec. 1026.52(b)(1)(ii)
permits the issuer to impose a fee of $8. If the card issuer imposes
a returned payment fee, the amount of the fee may be no more than
$25 pursuant to Sec. 1026.52(b)(1)(ii)(A).
2. Adjustments based on Consumer Price Index for penalty fees
other than late fees. For purposes of Sec. 1026.52(b)(1)(ii)(A) and
(b)(1)(ii)(B), the Bureau shall calculate each year price level
adjusted amounts for penalty fees other than late fees using the
Consumer Price Index in effect on June 1 of that year. When the
cumulative change in the adjusted minimum value derived from
applying the annual Consumer Price level to the current amounts in
Sec. 1026.52(b)(1)(ii)(A) and (b)(1)(ii)(B) has risen by a whole
dollar, those amounts will be increased by $1.00. Similarly, when
the cumulative change in the adjusted minimum value derived from
applying the annual Consumer Price level to the current amounts in
Sec. 1026.52(b)(1)(ii)(A) and (b)(1)(ii)(B) has decreased by a
whole dollar, those amounts will be decreased by $1.00. The Bureau
will publish adjustments to the amounts in Sec.
1026.52(b)(1)(ii)(A) and (b)(1)(ii)(B).
i. Historical thresholds.
A. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $25 under Sec.
1026.52(b)(1)(ii)(A) and $35 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2013.
B. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $26 under Sec.
1026.52(b)(1)(ii)(A) and $37 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2014.
C. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $27 under Sec.
1026.52(b)(1)(ii)(A) and $38 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2015.
D. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $27 under Sec.
1026.52(b)(1)(ii)(A), through December 31, 2016. Card issuers were
permitted to impose a fee for violating the terms of an agreement if
the fee did not exceed $37 under Sec. 1026.52(b)(1)(ii)(B), through
June 26, 2016, and $38 under Sec. 1026.52(b)(1)(ii)(B) from June
27, 2016, through December 31, 2016.
E. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $27 under Sec.
1026.52(b)(1)(ii)(A) and $38 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2017.
F. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $27 under Sec.
1026.52(b)(1)(ii)(A) and $38 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2018.
G. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $28 under Sec.
1026.52(b)(1)(ii)(A) and $39 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2019.
H. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $29 under Sec.
1026.52(b)(1)(ii)(A) and $40 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2020.
I. Card issuers were permitted to impose a fee for violating the
terms of an agreement if the fee did not exceed $29 under Sec.
1026.52(b)(1)(ii)(A) and $40 under Sec. 1026.52(b)(1)(ii)(B),
through December 31, 2021.
3. Delinquent balance for charge card accounts. Section
1026.52(b)(1)(ii)(C) provides that, when a charge card issuer that
requires payment of outstanding balances in full at the end of each
billing cycle has not received the required payment for two or more
consecutive billing cycles, the card issuer may impose a late
payment fee that does not exceed three percent of the delinquent
balance. For purposes of Sec. 1026.52(b)(1)(ii)(C), the delinquent
balance is any previously billed amount that remains unpaid at the
time the late payment fee is imposed pursuant to Sec.
1026.52(b)(1)(ii)(C). Consistent with Sec. 1026.52(b)(2)(ii), a
charge card issuer that imposes a fee pursuant to Sec.
1026.52(b)(1)(ii)(C) with respect to a late payment may not impose a
fee pursuant to Sec. 1026.52(b)(1)(ii)(B) with respect to the same
late payment. The following examples illustrate the application of
Sec. 1026.52(b)(1)(ii)(C):
i. Assume that a charge card issuer requires payment of
outstanding balances in full at the end of each billing cycle and
that the billing cycles for the account begin on the first day of
the month and end on the last day of the month. At the end of the
June billing cycle, the account has a balance of $1,000. On July 5,
the card issuer provides a periodic statement disclosing the $1,000
balance consistent with Sec. 1026.7. During the July billing cycle,
the account is used for $292 in transactions, increasing the balance
to $1,292. At the end of the July billing cycle, no payment has been
received and the card issuer imposes a $8 late payment fee
consistent with Sec. 1026.52(b)(1)(ii). On August 5, the card
issuer provides a periodic statement disclosing the $1,300 balance
consistent with Sec. 1026.7. During the August billing cycle, the
account is used for $200 in transactions, increasing the balance to
$1,500. At the end of the August billing cycle, no payment has been
received. Consistent with Sec. 1026.52(b)(1)(ii)(C), the card
issuer may impose a late payment fee of $39, which is 3% of the
$1,300 balance that was due at the end of the August billing cycle.
Section 1026.52(b)(1)(ii)(C) does not permit the card issuer to
include the $200 in transactions that occurred during the August
billing cycle.
ii. Same facts as above except that, on August 25, a $100
payment is received. Consistent with Sec. 1026.52(b)(1)(ii)(C), the
card issuer may impose a late payment fee of $36, which is 3% of the
unpaid portion of the $1,300 balance that was due at the end of the
August billing cycle ($1,200).
iii. Same facts as in paragraph i above except that, on August
25, a $200 payment is received. Consistent with Sec.
1026.52(b)(1)(ii)(C), the card issuer may impose a late payment fee
of $33, which is 3% of the unpaid portion of the $1,300 balance that
was due at the end of the August billing cycle ($1,100). In the
alternative, the card issuer may impose a late payment fee of $8
consistent with Sec. 1026.52(b)(1)(ii). However, Sec.
1026.52(b)(2)(ii) prohibits the card issuer from imposing both fees.
52(b)(2) Prohibited Fees
1. Relationship to Sec. 1026.52(b)(1). A card issuer does not
comply with Sec. 1026.52(b) if it imposes a fee that is
inconsistent with the prohibitions in Sec. 1026.52(b)(2). Thus, the
prohibitions in Sec. 1026.52(b)(2) apply even if a fee is
consistent with Sec. 1026.52(b)(1)(i) or (b)(1)(ii). For example,
even if a card issuer has determined for purposes of Sec.
1026.52(b)(1)(i) that a $27 fee represents a reasonable proportion
of the total costs incurred by the card issuer as a result of a
particular type of violation, Sec. 1026.52(b)(2)(i) prohibits the
card issuer from imposing that fee if the dollar amount associated
with the violation is less than $27. Similarly, even if Sec.
1026.52(b)(1)(ii) permits a card issuer to impose a $25 fee, Sec.
1026.52(b)(2)(i) prohibits the card issuer from imposing that fee if
the dollar amount associated with the violation is less than $25.
52(b)(2)(i) Late Payment Fees That Exceed 25 Percent of the Amount of
the Required Minimum Periodic Payment or Fees, Other Than Late Payment
Fees That Exceed Dollar Amount Associated With Violation
1. Late payment fees. Section 1026.52(b)(2)(i) provides that a
card issuer
[[Page 18948]]
must not impose a fee for a late payment on a credit card account
under an open-end (not home-secured) consumer credit plan that
exceeds 25 percent of the amount of the required minimum periodic
payment due immediately prior to assessment of the late payment fee.
The required minimum periodic payment due immediately prior to the
assessment of the late payment fee is the amount that the consumer
is required to pay to avoid the late payment fee, including, as
applicable, any missed payments and fees assessed from prior billing
cycles. For example:
i. Assume that a $20 required minimum periodic payment is due on
September 25. The card issuer does not receive any payment on or
before September 25. On September 26, the card issuer imposes a late
payment fee. For purposes of Sec. 1026.52(b)(2)(i), the dollar
amount associated with the late payment is twenty-five percent of
the amount of the required minimum periodic payment due on September
25 ($5). Thus, under Sec. 1026.52(b)(2)(i)(A), the amount of that
fee cannot exceed $5 (even if a higher fee would be permitted under
Sec. 1026.52(b)(1)).
ii. Same facts as above except that, on September 25, the card
issuer receives a $10 payment. No further payments are received. On
September 26, the card issuer imposes a late payment fee. For
purposes of Sec. 1026.52(b)(2)(i), the dollar amount associated
with the late payment is twenty-five percent of the full amount of
the required minimum periodic payment due on September 25 ($5),
rather than twenty-five percent of the unpaid portion of that
payment ($2.50). Thus, under Sec. 1026.52(b)(2)(i)(A), the amount
of the late payment fee cannot exceed $5 (even if a higher fee would
be permitted under Sec. 1026.52(b)(1)).
iii. Assume that a $20 required minimum periodic payment is due
on October 28 and the billing cycle for the account closes on
October 31. The card issuer does not receive any payment on or
before November 3. On November 3, the card issuer determines that
the required minimum periodic payment due on November 28 is $50. On
November 5, the card issuer imposes a late payment fee. For purposes
of Sec. 1026.52(b)(2)(i), the dollar amount associated with the
late payment is twenty-five percent of the amount of the required
minimum periodic payment due on October 28 ($5), rather than the
amount of the required minimum periodic payment due on November 28
($50). Thus, under Sec. 1026.52(b)(2)(i)(A), the amount of that fee
cannot exceed $5 (even if a higher fee would be permitted under
Sec. 1026.52(b)(1)).
2. Returned payment fees. For purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with a returned
payment is the amount of the required minimum periodic payment due
immediately prior to the date on which the payment is returned to
the card issuer. Thus, Sec. 1026.52(b)(2)(i)(A) prohibits a card
issuer from imposing a returned payment fee that exceeds the amount
of that required minimum periodic payment. However, if a payment has
been returned and is submitted again for payment by the card issuer,
there is no additional dollar amount associated with a subsequent
return of that payment and Sec. 1026.52(b)(2)(i)(B) prohibits the
card issuer from imposing an additional returned payment fee. For
example:
i. Assume that the billing cycles for an account begin on the
first day of the month and end on the last day of the month and that
the payment due date is the twenty-fifth day of the month. A minimum
payment of $15 is due on March 25. The card issuer receives a check
for $100 on March 23, which is returned to the card issuer for
insufficient funds on March 26. For purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with the returned
payment is the amount of the required minimum periodic payment due
on March 25 ($15). Thus, Sec. 1026.52(b)(2)(i)(A) prohibits the
card issuer from imposing a returned payment fee that exceeds $15
(even if a higher fee would be permitted under Sec. 1026.52(b)(1)).
Furthermore, Sec. 1026.52(b)(2)(ii) prohibits the card issuer from
assessing both a late payment fee and a returned payment fee in
these circumstances. See comment 52(b)(2)(ii)-1.
ii. Same facts as above except that the card issuer receives the
$100 check on March 31 and the check is returned for insufficient
funds on April 2. The minimum payment due on April 25 is $30. For
purposes of Sec. 1026.52(b)(2)(i), the dollar amount associated
with the returned payment is the amount of the required minimum
periodic payment due on March 25 ($15), rather than the amount of
the required minimum periodic payment due on April 25 ($30). Thus,
Sec. 1026.52(b)(2)(i)(A) prohibits the card issuer from imposing a
returned payment fee that exceeds $15 (even if a higher fee would be
permitted under Sec. 1026.52(b)(1)). Furthermore, Sec.
1026.52(b)(2)(ii) prohibits the card issuer from assessing both a
late payment fee and a returned payment fee in these circumstances.
See comment 52(b)(2)(ii)-1.
iii. Same facts as paragraph i above except that, on March 28,
the card issuer presents the $100 check for payment a second time.
On April 1, the check is again returned for insufficient funds.
Section 1026.52(b)(2)(i)(B) prohibits the card issuer from imposing
a returned payment fee based on the return of the payment on April
1.
iv. Assume that the billing cycles for an account begin on the
first day of the month and end on the last day of the month and that
the payment due date is the twenty-fifth day of the month. A minimum
payment of $15 is due on August 25. The card issuer receives a check
for $15 on August 23, which is not returned. The card issuer
receives a check for $50 on September 5, which is returned to the
card issuer for insufficient funds on September 7. Section
1026.52(b)(2)(i)(B) does not prohibit the card issuer from imposing
a returned payment fee in these circumstances. Instead, for purposes
of Sec. 1026.52(b)(2)(i), the dollar amount associated with the
returned payment is the amount of the required minimum periodic
payment due on August 25 ($15). Thus, Sec. 1026.52(b)(2)(i)(A)
prohibits the card issuer from imposing a returned payment fee that
exceeds $15 (even if a higher fee would be permitted under Sec.
1026.52(b)(1)).
3. Over-the-limit fees. For purposes of Sec. 1026.52(b)(2)(i),
the dollar amount associated with extensions of credit in excess of
the credit limit for an account is the total amount of credit
extended by the card issuer in excess of the credit limit during the
billing cycle in which the over-the-limit fee is imposed. Thus,
Sec. 1026.52(b)(2)(i)(A) prohibits a card issuer from imposing an
over-the-limit fee that exceeds that amount. Nothing in Sec.
1026.52(b) permits a card issuer to impose an over-the-limit fee if
imposition of the fee is inconsistent with Sec. 1026.56. The
following examples illustrate the application of Sec.
1026.52(b)(2)(i)(A) to over-the-limit fees:
i. Assume that the billing cycles for a credit card account with
a credit limit of $5,000 begin on the first day of the month and end
on the last day of the month. Assume also that, consistent with
Sec. 1026.56, the consumer has affirmatively consented to the
payment of transactions that exceed the credit limit. On March 1,
the account has a $4,950 balance. On March 6, a $60 transaction is
charged to the account, increasing the balance to $5,010. On March
25, a $5 transaction is charged to the account, increasing the
balance to $5,015. On the last day of the billing cycle (March 31),
the card issuer imposes an over-the-limit fee. For purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with the extensions
of credit in excess of the credit limit is the total amount of
credit extended by the card issuer in excess of the credit limit
during the March billing cycle ($15). Thus, Sec.
1026.52(b)(2)(i)(A) prohibits the card issuer from imposing an over-
the-limit fee that exceeds $15 (even if a higher fee would be
permitted under Sec. 1026.52(b)(1)).
ii. Same facts as above except that, on March 26, the card
issuer receives a payment of $20, reducing the balance below the
credit limit to $4,995. Nevertheless, for purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with the extensions
of credit in excess of the credit limit is the total amount of
credit extended by the card issuer in excess of the credit limit
during the March billing cycle ($15). Thus, consistent with Sec.
1026.52(b)(2)(i)(A), the card issuer may impose an over-the-limit
fee of $15.
4. Declined access check fees. For purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with declining
payment on a check that accesses a credit card account is the amount
of the check. Thus, when a check that accesses a credit card account
is declined, Sec. 1026.52(b)(2)(i)(A) prohibits a card issuer from
imposing a fee that exceeds the amount of that check. For example,
assume that a check that accesses a credit card account is used as
payment for a $50 transaction, but payment on the check is declined
by the card issuer because the transaction would have exceeded the
credit limit for the account. For purposes of Sec.
1026.52(b)(2)(i), the dollar amount associated with the declined
check is the amount of the check ($50). Thus, Sec.
1026.52(b)(2)(i)(A) prohibits the card issuer from imposing a fee
that exceeds $50. However, the amount of this fee must also comply
with Sec. 1026.52(b)(1)(i) or (b)(1)(ii).
5. Inactivity fees. Section 1026.52(b)(2)(i)(B)(2) prohibits a
card issuer from imposing a fee with respect to a credit card
account under an open-end (not home-secured) consumer credit plan
based on
[[Page 18949]]
inactivity on that account (including the consumer's failure to use
the account for a particular number or dollar amount of transactions
or a particular type of transaction). For example, Sec.
1026.52(b)(2)(i)(B)(2) prohibits a card issuer from imposing a $50
fee when a credit card account under an open-end (not home-secured)
consumer credit plan is not used for at least $2,000 in purchases
over the course of a year. Similarly, Sec. 1026.52(b)(2)(i)(B)(2)
prohibits a card issuer from imposing a $50 annual fee on all
accounts of a particular type but waiving the fee on any account
that is used for at least $2,000 in purchases over the course of a
year if the card issuer promotes the waiver or rebate of the annual
fee for purposes of Sec. 1026.55(e). However, if the card issuer
does not promote the waiver or rebate of the annual fee for purposes
of Sec. 1026.55(e), Sec. 1026.52(b)(2)(i)(B)(2) does not prohibit
a card issuer from considering account activity along with other
factors when deciding whether to waive or rebate annual fees on
individual accounts (such as in response to a consumer's request).
6. Closed account fees. Section 1026.52(b)(2)(i)(B)(3) prohibits
a card issuer from imposing a fee based on the closure or
termination of an account. For example, Sec. 1026.52(b)(2)(i)(B)(3)
prohibits a card issuer from:
i. Imposing a one-time fee to consumers who close their
accounts.
ii. Imposing a periodic fee (such as an annual fee, a monthly
maintenance fee, or a closed account fee) after an account is closed
or terminated if that fee was not imposed prior to closure or
termination. This prohibition applies even if the fee was disclosed
prior to closure or termination. See also comment 55(d)-1.
iii. Increasing a periodic fee (such as an annual fee or a
monthly maintenance fee) after an account is closed or terminated.
However, a card issuer is not prohibited from continuing to impose a
periodic fee that was imposed before the account was closed or
terminated.
7. Declined transaction fees. Section 1026.52(b)(2)(i)(B)(1)
states that card issuers must not impose a fee when there is no
dollar amount associated with the violation, such as for
transactions that the card issuer declines to authorize. With regard
to a covered separate credit feature and an asset feature on a
prepaid account that are both accessible by a hybrid prepaid-credit
card as defined in Sec. 1026.61 where the credit feature is a
credit card account under an open-end (not home-secured) consumer
credit plan, Sec. 1026.52(b)(2)(i)(B)(1) prohibits a card issuer
from imposing declined transaction fees in connection with the
credit feature, regardless of whether the declined transaction fee
is imposed on the credit feature or on the asset feature of the
prepaid account. For example, if the prepaid card attempts to access
credit from the covered separate credit feature accessible by the
hybrid prepaid-credit card and the transaction is declined, Sec.
1026.52(b)(2)(i)(B)(1) prohibits the card issuer from imposing a
declined transaction fee, regardless of whether the fee is imposed
on the credit feature or on the asset feature of the prepaid
account. Fees imposed for declining a transaction that would have
only accessed the asset feature of the prepaid account and would not
have accessed the covered separate credit feature accessible by the
hybrid prepaid-credit are not covered by Sec.
1026.52(b)(2)(i)(B)(1).
52(b)(2)(ii) Multiple Fees Based on a Single Event or Transaction
1. Single event or transaction. Section 1026.52(b)(2)(ii)
prohibits a card issuer from imposing more than one fee for
violating the terms or other requirements of an account based on a
single event or transaction. If Sec. 1026.56(j)(1) permits a card
issuer to impose fees for exceeding the credit limit in consecutive
billing cycles based on the same over-the-limit transaction, those
fees are not based on a single event or transaction for purposes of
Sec. 1026.52(b)(2)(ii). The following examples illustrate the
application of Sec. 1026.52(b)(2)(ii). Assume for purposes of these
examples that the billing cycles for a credit card account begin on
the first day of the month and end on the last day of the month and
that the payment due date for the account is the twenty-fifth day of
the month.
i. Assume that the required minimum periodic payment due on
March 25 is $35. On March 26, the card issuer has not received any
payment and imposes a late payment fee. Consistent with Sec.
1026.52(b)(1)(ii) and (b)(2)(i), the card issuer may impose an $8
late payment fee on March 26. However, Sec. 1026.52(b)(2)(ii)
prohibits the card issuer from imposing an additional late payment
fee if the $35 minimum payment has not been received by a subsequent
date (such as March 31).
A. On April 3, the card issuer provides a periodic statement
disclosing that a $70 required minimum periodic payment is due on
April 25. This minimum payment includes the $35 minimum payment due
on March 25 and the $8 late payment fee imposed on March 26. On
April 20, the card issuer receives a $35 payment. No additional
payments are received during the April billing cycle. Section
1026.52(b)(2)(ii) does not prohibit the card issuer from imposing a
late payment fee based on the consumer's failure to make the $70
required minimum periodic payment on or before April 25.
Accordingly, consistent with Sec. 1026.52(b)(1)(ii)) and (b)(2)(i),
the card issuer may impose an $8 late payment fee on April 26.
B. On April 3, the card issuer provides a periodic statement
disclosing that a $35 required minimum periodic payment is due on
April 25. This minimum payment does not include the $35 minimum
payment due on March 25 or the $8 late payment fee imposed on March
26. On April 20, the card issuer receives a $35 payment. No
additional payments are received during the April billing cycle.
Because the card issuer has received the required minimum periodic
payment due on April 25 and because Sec. 1026.52(b)(2)(ii)
prohibits the card issuer from imposing a second late payment fee
based on the consumer's failure to make the $35 minimum payment due
on March 25, the card issuer cannot impose a late payment fee in
these circumstances.
ii. Assume that the required minimum periodic payment due on
March 25 is $35.
A. On March 25, the card issuer receives a check for $50, but
the check is returned for insufficient funds on March 27. Consistent
with Sec. 1026.52(b)(1)(ii), (b)(1)(ii)(A) and (b)(2)(i)(A), the
card issuer may impose a late payment fee of $8 or a returned
payment fee of $25. However, Sec. 1026.52(b)(2)(ii) prohibits the
card issuer from imposing both fees because those fees would be
based on a single event or transaction.
B. Same facts as paragraph ii.A. above except that that card
issuer receives the $50 check on March 27 and the check is returned
for insufficient funds on March 29. Consistent with Sec.
1026.52(b)(1)(ii), (b)(1)(ii)(A) and (b)(2)(i)(A), the card issuer
may impose a late payment fee of $8 or a returned payment fee of
$25. However, Sec. 1026.52(b)(2)(ii) prohibits the card issuer from
imposing both fees because those fees would be based on a single
event or transaction. If no payment is received on or before the
next payment due date (April 25), Sec. 1026.52(b)(2)(ii) does not
prohibit the card issuer from imposing a late payment fee.
iii. Assume that the required minimum periodic payment due on
July 25 is $30. On July 10, the card issuer receives a $50 payment,
which is not returned. On July 20, the card issuer receives a $100
payment, which is returned for insufficient funds on July 24.
Consistent with Sec. 1026.52(b)(1)(ii)(A) and (b)(2)(i)(A), the
card issuer may impose a returned payment fee of $25. Nothing in
Sec. 1026.52(b)(2)(ii) prohibits the imposition of this fee.
iv. Assume that the credit limit for an account is $1,000 and
that, consistent with Sec. 1026.56, the consumer has affirmatively
consented to the payment of transactions that exceed the credit
limit. On March 31, the balance on the account is $970 and the card
issuer has not received the $35 required minimum periodic payment
due on March 25. On that same date (March 31), a $70 transaction is
charged to the account, which increases the balance to $1,040.
Consistent with Sec. 1026.52(b)(1)(ii), (b)(1)(ii)(A) and
(b)(2)(i)(A), the card issuer may impose a late payment fee of $8
and an over-the-limit fee of $25. Section 1026.52(b)(2)(ii) does not
prohibit the imposition of both fees because those fees are based on
different events or transactions. No additional transactions are
charged to the account during the March, April, or May billing
cycles. If the account balance remains more than $35 above the
credit limit on April 26, the card issuer may impose an over-the-
limit fee of $35 pursuant to Sec. 1026.52(b)(1)(ii)(B), to the
extent consistent with Sec. 1026.56(j)(1). Furthermore, if the
account balance remains more than $35 above the credit limit on May
26, the card issuer may again impose an over-the-limit fee of $35
pursuant to Sec. 1026.52(b)(1)(ii)(B), to the extent consistent
with Sec. 1026.56(j)(1). Thereafter, Sec. 1026.56(j)(1) does not
permit the card issuer to impose additional over-the-limit fees
unless another over-the-limit transaction occurs. However, if an
over-the-limit transaction occurs during the six billing cycles
following the May billing cycle, the card issuer may impose an over-
the-limit fee of $35 pursuant to Sec. 1026.52(b)(1)(ii)(B).
v. Assume that the credit limit for an account is $5,000 and
that, consistent with
[[Page 18950]]
Sec. 1026.56, the consumer has affirmatively consented to the
payment of transactions that exceed the credit limit. On July 23,
the balance on the account is $4,950. On July 24, the card issuer
receives the $100 required minimum periodic payment due on July 25,
reducing the balance to $4,850. On July 26, a $75 transaction is
charged to the account, which increases the balance to $4,925. On
July 27, the $100 payment is returned for insufficient funds,
increasing the balance to $5,025. Consistent with Sec.
1026.52(b)(1)(ii)(A) and (b)(2)(i)(A), the card issuer may impose a
returned payment fee of $25 or an over-the-limit fee of $25.
However, Sec. 1026.52(b)(2)(ii) prohibits the card issuer from
imposing both fees because those fees would be based on a single
event or transaction.
vi. Assume that the required minimum periodic payment due on
March 25 is $50. On March 20, the card issuer receives a check for
$50, but the check is returned for insufficient funds on March 22.
Consistent with Sec. 1026.52(b)(1)(ii)(A) and (b)(2)(i)(A), the
card issuer may impose a returned payment fee of $25. On March 25,
the card issuer receives a second check for $50, but the check is
returned for insufficient funds on March 27. Consistent with Sec.
1026.52(b)(1)(ii), (b)(1)(ii)(A), (b)(1)(ii)(B), and (b)(2)(i)(A),
the card issuer may impose a late payment fee of $8 or a returned
payment fee of $35. However, Sec. 1026.52(b)(2)(ii) prohibits the
card issuer from imposing both fees because those fees would be
based on a single event or transaction.
vii. Assume that the required minimum periodic payment due on
February 25 is $100. On February 25, the card issuer receives a
check for $100. On March 3, the card issuer provides a periodic
statement disclosing that a $120 required minimum periodic payment
is due on March 25. On March 4, the $100 check is returned to the
card issuer for insufficient funds. Consistent with Sec.
1026.52(b)(1)(ii), (b)(1)(ii)(A) and (b)(2)(i)(A), the card issuer
may impose a late payment fee of $8 or a returned payment fee of $25
with respect to the $100 payment. However, Sec. 1026.52(b)(2)(ii)
prohibits the card issuer from imposing both fees because those fees
would be based on a single event or transaction. On March 20, the
card issuer receives a $120 check, which is not returned. No
additional payments are received during the March billing cycle.
Because the card issuer has received the required minimum periodic
payment due on March 25 and because Sec. 1026.52(b)(2)(ii)
prohibits the card issuer from imposing a second fee based on the
$100 payment that was returned for insufficient funds, the card
issuer cannot impose a late payment fee in these circumstances.
* * * * *
Section 1026.60--Credit and Charge Card Applications and
Solicitations
* * * * *
60(a)(2) Form of Disclosures; Tabular Format
1. Location of table.
i. General. Except for disclosures given electronically,
disclosures in Sec. 1026.60(b) that are required to be provided in
a table must be prominently located on or with the application or
solicitation. Disclosures are deemed to be prominently located, for
example, if the disclosures are on the same page as an application
or solicitation reply form. If the disclosures appear elsewhere,
they are deemed to be prominently located if the application or
solicitation reply form contains a clear and conspicuous reference
to the location of the disclosures and indicates that they contain
rate, fee, and other cost information, as applicable.
ii. Electronic disclosures. If the table is provided
electronically, the table must be provided in close proximity to the
application or solicitation. Card issuers have flexibility in
satisfying this requirement. Methods card issuers could use to
satisfy the requirement include, but are not limited to, the
following examples (whatever method is used, a card issuer need not
confirm that the consumer has read the disclosures):
A. The disclosures could automatically appear on the screen when
the application or reply form appears;
B. The disclosures could be located on the same web page as the
application or reply form (whether or not they appear on the initial
screen), if the application or reply form contains a clear and
conspicuous reference to the location of the disclosures and
indicates that the disclosures contain rate, fee, and other cost
information, as applicable;
C. Card issuers could provide a link to the electronic
disclosures on or with the application (or reply form) as long as
consumers cannot bypass the disclosures before submitting the
application or reply form. The link would take the consumer to the
disclosures, but the consumer need not be required to scroll
completely through the disclosures; or
D. The disclosures could be located on the same web page as the
application or reply form without necessarily appearing on the
initial screen, immediately preceding the button that the consumer
will click to submit the application or reply.
2. Multiple accounts. If a tabular format is required to be
used, card issuers offering several types of accounts may disclose
the various terms for the accounts in a single table or may provide
a separate table for each account.
3. Information permitted in the table. See the commentary to
Sec. 1026.60(b), (d), and (e)(1) for guidance on additional
information permitted in the table.
4. Deletion of inapplicable disclosures. Generally, disclosures
need only be given as applicable. Card issuers may, therefore, omit
inapplicable headings and their corresponding boxes in the table.
For example, if no foreign transaction fee is imposed on the
account, the heading Foreign transaction and disclosure may be
deleted from the table, or the disclosure form may contain the
heading Foreign transaction and a disclosure showing none. There is
an exception for the grace period disclosure; even if no grace
period exists, that fact must be stated.
5. Highlighting of annual percentage rates and fee amounts.
i. In general. See Samples G-10(B) and G-10(C) for guidance on
providing the disclosures described in Sec. 1026.60(a)(2)(iv) in
bold text. Other annual percentage rates or fee amounts disclosed in
the table may not be in bold text. Samples G-10(B) and G-10(C) also
provide guidance to issuers on how to disclose the rates and fees
described in Sec. 1026.60(a)(2)(iv) in a clear and conspicuous
manner, by including these rates and fees generally as the first
text in the applicable rows of the table so that the highlighted
rates and fees generally are aligned vertically in the table.
ii. Maximum limits on fees. Section 1026.60(a)(2)(iv) provides
that any maximum limits on fee amounts must be disclosed in bold
text. For example, assume that consistent with Sec.
1026.52(b)(1)(ii), a card issuer's late payment fee will not exceed
$8. The maximum limit of $8 for the late payment fee must be
highlighted in bold. Similarly, assume an issuer will charge a cash
advance fee of $5 or 3 percent of the cash advance transaction
amount, whichever is greater, but the fee will not exceed $100. The
maximum limit of $100 for the cash advance fee must be highlighted
in bold.
iii. Periodic fees. Section 1026.60(a)(2)(iv) provides that any
periodic fee disclosed pursuant to Sec. 1026.60(b)(2) that is not
an annualized amount must not be disclosed in bold. For example, if
an issuer imposes a $10 monthly maintenance fee for a card account,
the issuer must disclose in the table that there is a $10 monthly
maintenance fee, and that the fee is $120 on an annual basis. In
this example, the $10 fee disclosure would not be disclosed in bold,
but the $120 annualized amount must be disclosed in bold. In
addition, if an issuer must disclose any annual fee in the table,
the amount of the annual fee must be disclosed in bold.
6. Form of disclosures. Whether disclosures must be in
electronic form depends upon the following:
i. If a consumer accesses a credit card application or
solicitation electronically (other than as described under ii.
below), such as online at a home computer, the card issuer must
provide the disclosures in electronic form (such as with the
application or solicitation on its website) in order to meet the
requirement to provide disclosures in a timely manner on or with the
application or solicitation. If the issuer instead mailed paper
disclosures to the consumer, this requirement would not be met.
ii. In contrast, if a consumer is physically present in the card
issuer's office, and accesses a credit card application or
solicitation electronically, such as via a terminal or kiosk (or if
the consumer uses a terminal or kiosk located on the premises of an
affiliate or third party that has arranged with the card issuer to
provide applications or solicitations to consumers), the issuer may
[[Page 18951]]
provide disclosures in either electronic or paper form, provided the
issuer complies with the timing and delivery (``on or with'')
requirements of the regulation.
7. Terminology. Section 1026.60(a)(2)(i) generally requires that
the headings, content, and format of the tabular disclosures be
substantially similar, but need not be identical, to the applicable
tables in appendix G-10 to part 1026; but see Sec. 1026.5(a)(2) for
terminology requirements applicable to Sec. 1026.60 disclosures.
* * * * *
Rohit Chopra,
Director, Consumer Financial Protection Bureau.
[FR Doc. 2023-02393 Filed 3-28-23; 8:45 am]
BILLING CODE 4810-AM-P