Federal Circuits, 5th Cir. (March 31, 1980)
Docket number: 77-3001
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Ohio Supreme Court - Contimortgage Corp. v. Delawder (Ohio 2001)
William R. Travis, Austin, Tex., for defendant-appellant.
James G. Boyle, Austin, Tex., for plaintiff-appellee.Appeal from the United States District Court for the Western District of Texas.Before JONES, BROWN and RUBIN, Circuit Judges.JOHN R. BROWN, Circuit Judge:On October 8, 1974, the Appellee, Mary Smith (Smith), entered into a retail installment sales contract with the Appellant Don Chapman, d/b/a Don Chapman Motor Sales (Chapman), for the purchase of a 1969 Mercury. As part of the purchase agreement Smith carried insurance on the car. Several months after the purchase, the automobile was wrecked. The insurance proceeds paid off the sum still owed to Chapman and the amount representing Smith's equity in the automobile. Smith then asked Chapman to provide her with a new automobile at no other charge than the continuation of her monthly payments. When Chapman refused, Smith filed this suit on July 9, 1975, alleging violations of the Truth in Lending Act, 15 U.S.C.A. § 1601, et seq. (1974 & Supp.1979) (TILA), regulations promulgated thereunder, 12 CFR § 226.1, et seq. (1979) (Regulation Z), and the Texas Consumer Credit Code, Tex.Civ.Stat.Ann. art. 5069-7.01, et seq. (1971 & Supp.1979) (TCCC). Both parties filed Motions for Summary Judgment. Following recommendations made by a Special Master, the District Court denied Chapman's Motion for Summary Judgment but granted Smith's Motion, finding that Chapman had violated three provisions of Regulation Z and two provisions of the TCCC.1 Statutory penalties of twice the amount of the finance charges in connection with the transaction, plus attorney's fees, were imposed for violation of the federal laws and for violation of the state regulations, the entire penalty totalling four times the finance charge.2 15 U.S.C.A. § 1640(a); Tex.Civ.Stat.Ann. art. 5069-8.01. We affirm.I. The Purpose Of TILA And The Standard Of ComplianceThe foundation of Chapman's argument is that, although he did not specifically comply with the terms of TILA and Regulation Z, he is in substantial compliance and that, since all of the terms of a contract in question were explained to and understood by Smith, Chapman has achieved the purpose of TILA and should not be penalized. The Appellant misconceives both the applicable standard for compliance with TILA, as well as the purpose of the Act.First, the purpose of TILA is to promote the "informed use of credit . . . (and) an awareness of the cost thereof by consumers" by assuring "a meaningful disclosure of credit terms so that the consumer will be able to compare more readily the various credit terms available to him . . .." 15 U.S.C.A. § 1601.It is now well-settled that an objective standard is used in determining violations of TILA. It is not necessary that the plaintiff-consumer actually have been deceived in order for there to be a violation. McGowan v. King, Inc., 569 F.2d 845, 849 (5th Cir. 1978). TILA is primarily enforced through lawsuits filed by consumers acting as "private attorneys general." McGowan v. King, supra, 569 F.2d at 848-49; McGowan v. Credit Center of North Jackson, Inc., 546 F.2d 73, 77 (5th Cir. 1977); Sosa v. Fite, 498 F.2d 114, 121 (5th Cir. 1974); Thomas v. Myers-Dickson Furniture Company, 479 F.2d 740, 748 (5th Cir. 1973). In fact, consumers who are aware of the true terms of a contract are more able to see that these terms are not clearly and conspicuously disclosed on the installment sales contract form. Thus, the purpose of the Act is more readily served by allowing lawsuits by these consumers who are less easily deceived.The remedial scheme in the TIL Act is designed to deter generally illegalities which are only rarely uncovered and punished, and not just to compensate borrowers for their actual injuries in any particular case.Williams v. Public Finance Corp., 598 F.2d 349, 356 (5th Cir. 1979).Second, the applicable standard is strict compliance with the technical requirements of the Act. Only adherence to a strict compliance standard will promote the standardization of terms which will permit consumers readily to make meaningful comparisons of available credit alternatives. 15 U.S.C.A. § 1601; Pennino v. Morris Kirschman and Co., Inc., 526 F.2d 367, 370 (5th Cir. 1976); Houston v. Atlanta Federal Savings & Loan Association, 414 F.Supp. 851, 855 (N.D.Ga.1976); Powers v. Sims & Levin Realtors, 396 F.Supp. 12, 20 (E.D.Va.1975).Strict compliance does not necessarily mean punctilious compliance if, with minor deviations from the language described in the Act, there is still a substantial, clear disclosure of the fact or information demanded by the applicable statute or regulation. This is what this Court meant in Dixon v. D. H. Holmes Company, Ltd., 566 F.2d 571 (5th Cir. 1978). In that case, we affirmed a summary judgment in favor of a defendant creditor by adopting the District Court's oral reasons for finding compliance with TILA. The District Court Judge stated that "substantial and not sacramental compliance is what is necessary," id. at 571, and that "(t)he question is not whether something is capable of semantic improvement but whether it contains a substantial and accurate disclosure . . .," id. at 573 (emphasis added). Chapman contends this opinion creates a substantial compliance standard which is in conflict with other strict compliance cases within the Circuit. We do not see any conflict of that sort. The District Court Judge in Dixon was merely saying it is not necessary to "flyspeck" the language of credit disclosures. He was not saying it is unnecessary to make the disclosure in the proper technical form and in the proper locations on the contract, as mandated by the requirements of TILA and Regulation Z.Moreover, the Dixon case imposes an objective standard the District Court Judge looked at the provisions in question objectively and concluded that they were clearly stated. Chapman would have us hold, not only that the applicable standard of compliance is less than strict, but also that it is achieved when the debtor in question understood the terms of the contract. We reject Chapman's proposed standard of review. This brings us to each of the contract provisions at issue to determine if they are in accordance with TILA and the TCCC.II. The "One-Sided" Requirement Of Regulation ZThe "Motor Vehicle Contract" that Smith entered into with Chapman Motors was a one-page document with terms printed on both sides of the page. The front of this document did not mention the security interest that the seller retained in the car; this was set forth as Condition No. 1 on the back of the page. Delinquency charges were stated on the front and as Condition No. 6 on the back of the document as follows:The Seller, at its option, shall collect a delinquency charge on each installment in default for a period of more than ten days in an amount not to exceed 5% of each installment or $5.00 whichever is less, or, in lieu thereof, interest after maturity on each such installment, not to exceed the highest lawful contract rate.The specific interest rate after maturity, imposed by Condition No. 10 on the back of the contract, was ten percent (10%) per annum. At the bottom of both sides of the page was printed: "NOTICE: SEE REVERSE SIDE FOR IMPORTANT INFORMATION, ALL TERMS OF WHICH ARE INCORPORATED BY REFERENCE."Smith alleged in her complaint that the failure to state these provisions on the front side of the page was a violation of Regulation Z, 12 CFR § 226.8(a) (1) which provides:§ 226.8 Credit other than open end specific disclosures. (a) General rule. Any creditor when extending credit other than open end credit shall, in accordance with § 226.6 and to the extent applicable, make the disclosures required by this section with respect to any transaction consummated on or after July 1, 1969.All of the disclosures shall be made together on either: (1) The note or other instrument evidencing the obligation on the same side of the page and above the place for the customer's signature; or (2) One side of a separate statement which identifies the transaction.Section 226.8(b) lists the items which must be disclosed under § 226.8(a)(1):(b) Disclosures in sale and nonsale credit. In any transaction subject to this section, the following items, as applicable, shall be disclosed: (4) The amount, or method of computing the amount, of any default, delinquency, or similar charges payable in the event of late payments. (5) A description or identification of the type of any security interest held or to be retained or acquired by the creditor in connection with the extension of credit, and a clear identification of the property to which the security interest relates or, if such property is not identifiable, an explanation of the manner in which the creditor retains or may acquire a security interest in such property which the creditor is unable to identify.The general rule for disclosures is that they "be made clearly, conspicuously, in meaningful sequence, in accordance with the further requirements of (§ 226), and at the time and in the terminology prescribed in applicable sections." 12 CFR § 226.6(a).Chapman first contends that he has complied with the requirements of § 226.8(a)(1) by including the notice of incorporation by reference of terms on both sides of the page. Under a strict compliance standard, incorporating by reference terms on the backside of a page when it is explicitly required that these terms appear on the front side, would be a violation of TILA. See Gennuso v. Commercial Bank & Trust Co., 566 F.2d 437, 440-42 (3d Cir. 1977) (reference by incorporation to another document describing property to which security interest relates held to be in violation of § 226.8(a)).Chapman's next argument is that, despite the clarity and specificity of these regulations, he has not violated TILA or Regulation Z because he is in compliance with an interpretive regulation, § 226.801, which establishes a third way of making the required disclosures:§ 226.801 Location of disclosures when contract, security agreement, and evidence of transaction are combined in a single document. (a) Some creditors incorporate the terms of a contract, a security agreement and evidence of a transaction in a single document. These documents are designed for processing by mechanical and electronic equipment. If all of the required disclosures under § 226.8 should be placed on the face of such a document, the creditor will be unable to utilize conventional accounting and record keeping equipment because of the size of the resulting document. The question arises as to whether required disclosures may be made on the face and the reverse side of such a document. (b) Where a creditor elects to combine disclosures with the contract, security agreement, and evidence of a transaction in a single document, the disclosures required under § 226.8 shall, in accordance with § 226.6, be made on the face of that document, on its reverse side, or on both sides: Provided, That the amount of the finance charge and the annual percentage rate shall appear on the face of the document, and, if the reverse side is used, the printing on both sides of the document shall be equally clear and conspicuous, both sides shall contain the statement, "NOTICE: See other side for important information," and the place for the customer's signature shall be provided following the full content of the document.Chapman has not attempted to establish that his single-page Motor Vehicle Contract is designed for processing by mechanical or electronic equipment. Instead, he contends that the operative language of this provision, contained in Part (b) of the section, does not mention mechanical or electronic processing and that therefore, the District Court erred in holding that such processing is a prerequisite to application of § 226.801.Chapman relies on Charles v. Krauss Company, Ltd., 572 F.2d 544 (5th Cir. 1978), in which this Court allowed a creditor to use a § 226.801 form for its installment sales contracts, even though the form was not designed for mechanical or electronic processing. This holding, however, was not based on a conclusion that the operative language of the regulation does not mention mechanical processing. In fact, we rejected that argument when it was made by Krauss Company, specifically holding that the regulation only applied to forms designed for mechanical processing. Id. at 548.We held in favor of Krauss Company only because it successfully asserted the defense of unintentional violation and bona fide error created by 15 U.S.C.A. § 1640(c).3 Krauss used the one-page form for easier retrieval from file drawers and believed that this was mechanical processing covered by the statute. Id. at 549. Chapman also contends that, even if mechanical or electronic processing must be shown to invoke § 226.801 he believed in good faith that this showing was not necessary, and thus he cannot be penalized. However, Chapman did not even mention his good faith defense until the oral argument of this appeal. Even then, the only evidence of good faith he presented was the fact that he had complied with § 226.801. Even if he did comply (and his noncompliance with this regulation is discussed below), this is not enough evidence to establish this defense.We approve of the District Court's reliance on two Federal Reserve Board letters which interpret § 226.801 to require a showing that the two-sided form is designed for mechanical or electronic processing. F.R.B. Letter of July 31, 1974, No. 825, 5 CCH CCG § 31,147; F.R.B. Letter of March 19, 1976, No. 1016, 5 CCH CCG P 31,356. The Federal Reserve Board continues to take this position:. . . As explained in prior Public Information Letters, 527, 782, 825 and 1016, copies of which are enclosed, this interpretation was written to alleviate a specific problem, and it only applies when the contract security agreement (if any), and evidence of the transaction are combined in a single document designed for processing by mechanical or electronic equipment. . . . If the combined note/disclosure statement/security agreement to which you refer is not of the type described in the first paragraph of § 226.801, the interpretation would not apply. . . .F.R.B. Letter of February 10, 1977, No. 1154, 5 CCH CCG P 31,536.This Court has consistently given great weight to administrative agency interpretations of their own regulations. Kinnett Dairies, Inc. v. Farrow, 580 F.2d 1260, 1270 (5th Cir. 1978); Florida Sugar Cane League, Inc. v. Usery, 531 F.2d 299, 304 (5th Cir. 1976); Roy Bryant Cattle Co. v. United States, 463 F.2d 418, 420 (5th Cir. 1972); Allen M. Campbell Co. General Contractors, Inc. v. Lloyd Wood Construction Co.,Try vLex for FREE for 3 days
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