[Federal Register Volume 62, Number 233 (Thursday, December 4, 1997)]
[Rules and Regulations]
[Pages 64138-64146]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-31612]


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DEPARTMENT OF THE TREASURY

Office of Thrift Supervision

12 CFR Parts 516, 543, 545, 552, 556, 563

[No. 97-121]
RIN 1550-AA83


Application Processing

AGENCY: Office of Thrift Supervision, Treasury.

ACTION: Final rule.

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SUMMARY: As a part of its on-going effort to review and streamline its 
regulations, the Office of Thrift Supervision (OTS) is issuing a final 
rule revising its comment procedures for specified applications and 
notices (collectively, applications). In addition to reorganizing the 
regulation, the OTS has expanded the comment period on these 
applications, set forth the information that a comment should contain, 
and replaced existing provisions requiring the OTS to conduct an oral 
argument on applications under certain circumstances, with provisions 
for informal and formal meetings. Under the final rule, the OTS will 
conduct an informal meeting ordinarily upon the request of a commenter, 
but also on its own initiative. Thereafter, upon the request of any 
participant to an informal meeting, the OTS will conduct a formal 
meeting. The OTS may also conduct a formal meeting on any application 
on its own initiative.

EFFECTIVE DATE: January 1, 1998.

FOR FURTHER INFORMATION CONTACT:
Catherine Shepard, Senior Attorney, Regulations and Legislation 
Division, (202) 906-7275, Kevin Corcoran, Assistant Chief Counsel, 
Business Transactions Division, (202) 906-6962, Office of Chief 
Counsel; or Diana L. Garmus, Director, Corporate Activities Division, 
(202) 906-5683, Office of Thrift Supervision, 1700 G Street NW., 
Washington, DC 20552.

SUPPLEMENTARY INFORMATION:

I. Background

    OTS regulations governing applications for permission to organize a 
federal stock or mutual savings association, to establish or relocate a 
branch office of a federal savings association, and to engage in a 
transaction that is subject to the Bank Merger Act require applicants 
to follow the public comment and review procedures at existing 
Sec. 543.2 (e) and (f).
    Currently, Sec. 543.2 provides an opportunity for the public to 
submit communications in favor or in protest of applications, and 
permits the applicant to respond to any protest. When a protest is 
timely submitted, meets specified criteria and includes a request for 
oral argument, or if an applicant timely requests an oral argument, the 
regulation requires the OTS to conduct an oral argument on the merits 
of the application. The OTS may also hold an oral argument in the 
absence of any protests, if it determines that these additional 
proceedings are desirable.
    On April 9, 1997, the OTS published a notice of proposed rulemaking 
revising these procedures.\1\ In addition to reorganizing the 
regulations, the OTS proposed to amend its existing procedures to 
expand the comment period on applications, prescribe the information 
that comments must contain in order to be considered when the OTS 
evaluates applications, and replace existing provisions that require 
the OTS to conduct an oral argument on applications under certain 
circumstances, with provisions for discretionary conferences. The OTS 
believed that these changes would make the application processing 
procedures easier to understand and apply. Additionally, the OTS 
concluded that the discretionary conference procedures would align OTS 
regulations more closely with those of the other federal banking 
agencies in accordance with section 303 of the Community Development 
and Regulatory Improvement Act of 1994.
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    \1\ 62 FR 17110 (April 9, 1997).
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II. Summary of Comments and Description of Final Rule

A. General Discussion of the Comments

    The public comment period on the proposed rule closed on June 9, 
1997. Eight commenters responded to the proposal: four community 
advocacy groups, two trade associations, one federal savings 
association, and one professional records and information management 
association.
    As a general matter, the four community advocacy groups opposed the 
elimination of mandatory oral arguments and supported the extension of 
the public comment period. Conversely, the trade associations and the 
federal savings association supported the proposed conference 
procedures and opposed the extension of the public comment period. The 
information management association expressed unqualified support for 
the proposal. Specific comments are discussed where appropriate in the 
section by section analysis below.

B. Section by Section Analysis

    The final rule adds new Subparts C and D to part 516. The new 
subparts use plain language drafting techniques promoted by the Vice 
President's National Performance Review Initiative and new guidance in 
the Federal Register Document Drafting Handbook (January 1997 edition). 
The primary goal of plain language drafting is to make regulations more 
readily understandable. Plain language drafting emphasizes the use of 
informative headings (often written as a question), non-technical 
language (including the use of ``you'') and sentences in the active 
voice.
    Although commenters did not have the opportunity to comment on the 
plain language format prior to its use in this final rule, the OTS 
believes that the benefits of the format justify its use. Moreover, the 
use of the plain language format has not altered the substance of the 
regulation. The OTS welcomes comments on the plain language format, and 
suggestions on how to improve this format. The OTS is committed to 
converting more of its regulations to the plain language format in 
order to reduce regulatory burden. The recently issued OTS final rule 
on subsidiaries uses this plain English drafting format. See 12 CFR 
Part 559 (1997).

Subpart C--Comment Procedures

Section 516.100--What Does This Subpart Do?
    Section 516.100 of the final rule provides that Part 516, Subpart C 
contains the procedures governing the submission of public comments on 
certain types of applications or notices pending before the OTS. 
Subpart C applies whenever a regulation incorporates the procedures, or 
where otherwise required by the OTS. This section is based on 
Sec. 516.5(a)(1) of the proposed rule.
Section 516.110--Who May Submit a Written Comment?
    Section 516.110 provides that any person may submit a written 
comment supporting or opposing an application. This provision is also 
based on proposed Sec. 516.5(a)(1).
Section 516.120--What Information Should I Include in My Comment?
    Under the existing rules, a protest is considered ``substantial'' 
if it is submitted in writing within the

[[Page 64139]]

comment period, and states a reason for the protest that is consistent 
with one of the regulatory bases for denying an application. To be a 
substantial protest, a comment must include the specific information 
required at existing Sec. 543.2(e)(2) and (4). Under the current rules, 
the term ``substantial'' serves a purely ministerial purpose--a means 
of separating comments that contain the required information (and, 
thus, may serve as the basis for a request for an oral argument) from 
those that do not.\2\
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    \2\ The existing oral argument procedures and the new meeting 
procedures are discussed below.
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    The proposed rule at Sec. 516.5(a)(3) described the information 
that a comment must contain in order to be considered by the OTS. Under 
the proposed rule, the comment was required to recite all relevant 
facts, including any economic or financial data supporting the 
commenter's position. Comments opposing an application were required to 
address at least one of the bases for denial of the application as set 
forth in the relevant regulations, recite relevant facts and supporting 
data addressing these relevant bases, and address any adverse effects 
on the commenter or community that may result from approval of the 
application.
    One commenter supported this proposed provision, noting that it 
provides important guidance to the public. Another commenter argued 
that the comment content criteria give the OTS too much discretion to 
reject comments that do not meet the technical content requirements. 
Commenters argued that these requirements should not be construed in an 
overly burdensome way.
    The OTS will review and consider all comments it receives 
regardless of whether the comment meets all of the regulatory criteria. 
The sole intent of the proposed content requirements was to guide 
commenters in providing information that would assist the OTS in 
understanding the basis for the comment. While the OTS will accept and 
consider all comments, including those that do not meet all of the 
content criteria, commenters are encouraged to include all relevant 
information and arguments.
    The OTS has revised the comment content provisions at Sec. 516.120 
to emphasize that the OTS will not reject a comment that does not meet 
all of the content criteria, and has made other changes to enhance the 
rule's clarity. Under the final rule, a comment should recite relevant 
facts, including any demographic, economic, or financial data, 
supporting the commenter's position. If the commenter opposes an 
application, the comment should also address at least one of the 
relevant regulatory reasons for which the OTS may deny an application, 
recite any relevant facts and supporting data addressing these reasons, 
and address how the approval of the application could harm the 
commenter or any community.
    If a commenter wishes to request an informal meeting under the 
revised procedures discussed in detail below, the commenter must file a 
request for the meeting with the comment. To ensure that the OTS will 
have sufficient notice of the questions to be discussed at the informal 
meeting, requests should describe the nature of the issues or facts to 
be discussed and the reasons why written submissions are insufficient 
to adequately address these facts or issues. See final Sec. 516.120(b).
Section 516.130--Where Do I File My Comment?
    Section 516.130 provides that public commenter must file its 
comment with the OTS office(s) set forth at Sec. 516.1(c). If an 
informal meeting is requested, the commenter must simultaneously send a 
copy of the request to the applicant. This provision was not included 
in the proposed rule, but has been added to improve the clarity of the 
final rule.
Section 516.140--Where Do I File My Comment?
    Under the current rules, a commenter must file a comment within 10 
days of the publication of a public notice of the filing of the 
application. This time period may extended to 17 days after 
publication, if a request for extension is filed within the 10-day 
period. Proposed Sec. 516.5(a)(2) replaced the existing 10-day comment 
period with a 25-day comment period.
    Three commenters supported the proposed 25-day comment period, 
noting that this is a clearly defined period and gives all prospective 
commenters an adequate time to submit appropriate comments. Two 
commenters urged the OTS to lengthen the comment period to 30 days 
arguing that a 30-day comment period is used by the Office of the 
Comptroller of the Currency (OCC), the Federal Reserve Board (FRB), and 
the OTS in merger and acquisition applications. Two commenters thought 
that the comment period should be shorter. One argued that 15 days is 
sufficient. Another argued that the OTS should provide a 17-day comment 
period, at least for applications involving associations that have an 
``outstanding'' or ``satisfactory'' rating under the community 
Reinvestment Act (CRA) and that are eligible for expedited treatment.
    The OTS is adopting the proposed 25-day comment period. The OTS 
continues to believe that this expanded time period, without an 
automatic extension, is more workable and less confusing. The OTS 
cannot adopt a 30-day comment period without substantially revising 
other application processing requirements. In accordance with section 
410 of the Competitive Equality Banking Act of 1987, Sec. 516.2(c)(1) 
requires the OTS to request additional information, deem an application 
complete, or decline to process an application within 30 days of 
receipt of an application. The OTS believes it is necessary to have at 
least five days to review comments within this 30-day review period.
    Under the proposed rule, the 25-day comment period would have begun 
on the date that the notice of application is published, a date that 
may precede the filing of the application. One commenter argued that 
the comment period should start on the day the application is submitted 
to the OTS. The commenter noted that this change would give community 
groups access to the application for the full comment period. The OTS 
agrees that commenters should have access to the application for the 
full comment period. Accordingly, under the final rule at 
Sec. 516.140(a), the comment period begins on the date that the 
application is filed.
    Under the proposed rule at Sec. 516.5(a)(2), the OTS would grant 
extensions of the 25-day comment period on a case-by-case basis. The 
OTS would consider a late-filed comment if the OTS determined that the 
comment addressed a significant regulatory concern and, within the 25-
day comment period, the commenter demonstrated good cause why it was 
unable to submit a timely comment. The length of any extension would be 
determined on a case-by-case basis.
    Commenters generally supported this provision. However, several 
commenters urged the OTS to define good cause to include specified 
circumstances, to set specific time frames for extensions and to make 
other changes. One commenter objected that the unlimited discretion 
accorded to the OTS under the proposed extension provision would create 
procedural confusion.
    The final rule continues to provide the OTS with maximum 
flexibility to address the unique circumstances of each extension 
request. For example, one commenter may need only an additional 24 
hours to copy or mail documents. Another commenter may be

[[Page 64140]]

awaiting pertinent public data and may require a longer opportunity to 
obtain and analyze the data. Accordingly, the final regulation at 
Sec. 516.140 does not prescribe the duration of the extension period or 
the circumstances that would constitute good cause. Rather, the OTS 
will make these determinations on a case-by-case basis.
    One commenter suggested that the OTS should encourage applicants 
and commenters to make joint requests for extensions of the comment 
period. One of the underlying purposes of the comment procedures is to 
promote dialogue and collaboration among the parties. Since joint 
extension requests will advance voluntary resolution of conflicts, the 
OTS encourages and generally will grant all jointly filed extension 
requests.
    Under the existing procedures at Sec. 543.2(e)(3), applicants may 
file an answer to any protest within 10 days after the last date for 
filing of comments. The proposed rule eliminated this provision. 
Instead, the OTS stated that it would generally provide an appropriate 
opportunity to respond by forwarding the comments to the applicant and 
requesting a response.
    Two commenters noted that the OTS failed to set a deadline for the 
applicant's response. One commenter suggested that OTS should provide 
at least 10 days for response. The other suggested that the OTS adopt 
the FRB practice of requiring applicants to respond within eight 
business days.
    It is unnecessary to establish a regulatory deadline for an 
applicant's response to comments. The OTS will continue to require 
applicants to respond to issues raised in comments the same way that it 
resolves other issues raised in applications. The OTS will, where 
appropriate, request the applicant to respond within 30 days to the 
issues raised in the application. See existing Sec. 516.2(c).
Section 516.150--Will I Have Additional Opportunities to Discuss the 
Applications?
    Under the existing rules at Sec. 543.2(f), the OTS must conduct an 
oral argument if the applicant or anyone filing a substantial protest 
makes a timely request for the argument or if the OTS considers an oral 
argument desirable. The proposed rule would have replaced the mandatory 
oral argument provisions. Proposed Sec. 516.5(b)(1) would have required 
additional proceedings only where the OTS determined that the 
proceedings would assist in the disposition of the application or would 
assist in the resolution of any issues raised by the application. 
Rather than an oral argument, the proposed rule permitted the OTS to 
arrange a conference between the applicant, commenters, and others. The 
proposed rule did not prescribe procedures for the conference. Instead, 
the proposed rule permitted the OTS to select the procedures 
appropriate to the application on a case-by-case basis.
    Three commenters supported the conference procedures contained in 
the proposed rule. These commenters concluded that the conference 
procedures were more efficient and flexible than the current oral 
argument procedures.
    Four community group commenters opposed the deletion of the 
mandatory oral argument. These commenters asserted that oral arguments: 
(1) Do not unduly delay the application process; (2) are conducive to 
fully informed decision making by the OTS; (3) are not hard to 
understand or apply; (4) ensure that consumer issues are adequately 
considered; and (5) promote dialogue and exchange between the 
association and commenters.\3\
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    \3\ In the proposed rule, the OTS noted that the discretionary 
conference procedures would be more consistent with the rules of the 
other federal banking agencies. One commenter argued that this 
rationale is not convincing since the other banking regulators often 
have supplemental procedures for gathering information. The only 
such procedure cited by the commenter, however, was the OCC's policy 
of conducting expedited CRA examinations upon request. The OTS has 
addressed these targeted examinations below at Section II.D.3.
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    The OTS continues to believe that formal oral arguments before a 
presiding officer are not necessary or productive in most cases.\4\ 
More often, comments can best be resolved in a less formal setting, 
such as a meeting or a telephone call. Accordingly, the final rule 
states that the OTS generally will conduct an informal meeting on 
applications upon the request of any commenter. Additionally, if an 
informal meeting fails to facilitate the resolution of issues to the 
satisfaction of any participant in an informal meeting, the final rule 
provides that the OTS will conduct a formal meeting before a presiding 
officer upon the filing of a request. The OTS may also conduct a formal 
meeting on any application on its own initiative. The new OTS informal 
and formal meeting procedures are based upon the OCC's related rule 
governing meetings and hearings at 12 CFR 5.11.
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    \4\ Two commenters argued that the OTS's proposed deletion of 
the mandatory oral hearing requirement was inconsistent with 
congressional intent expressed in section 2612 of the Economic 
Growth and Regulatory Paperwork Reduction Act of 1996 (EGRPRA). This 
section specifically requires the FRB to hold a hearing where a bank 
holding company seeks to acquire a thrift. EGRPRA, however, does not 
provide a similar legal right when a bank holding company acquires a 
commercial bank. The commenters argued that EGRPRA's retention of 
hearings in thrift acquisitions reflects Congress' view that the 
agency should provide hearings in all applications involving savings 
associations. The OTS disagrees. The hearing requirement in section 
2612 of EGRPRA, by its own terms, is limited to specified 
proceedings before another regulatory agency. There is no 
legislative history in EGRPRA mandating a broader application. If 
Congress intended to require hearings whenever a savings association 
is involved in any application proceeding before any banking 
regulator, the OTS believes that Congress would have manifested this 
intent more clearly.
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    Thus, the final rule at Sec. 516.150 states that the OTS may 
provide a commenter with additional opportunities to discuss the 
application in informal or formal meetings. The new procedures are 
contained in a new subpart D to part 516. The sections of this new part 
are discussed below.

Subpart D--Meeting Procedures

Section 516.160--What Does This Subpart Do?
    Subpart D establishes the procedures governing informal and formal 
meetings. It applies whenever a regulation incorporates the procedures 
in the subpart, or when otherwise required by OTS.
Section 516.170--What Procedures Govern Informal Meetings on 
Applications?
    Section 516.170 establishes the OTS informal meeting procedures. 
Under Sec. 516.170(a), the OTS may arrange an informal meeting to 
clarify and narrow the issues and to facilitate the resolution of the 
issues. If a commenter has filed a written request containing the 
information described at Sec. 516.120(b), the OTS will arrange a 
meeting. The OTS may also arrange a meeting upon its own initiative. 
The purpose of the informal meeting is to promote dialogue and to seek 
to achieve the voluntary resolution of issues. The OTS will inform the 
applicant and commenters requesting a meeting of its decision on a 
request for a meeting, or its decision to hold a meeting on its own 
initiative. See final Sec. 516.170(b).
    One commenter suggested that the final rule should require the OTS 
to announce its decision on the informal meeting before the expiration 
of applicable approval time frames specified in Secs. 516.2 and 516.3. 
The purpose of the informal meeting is to address and resolve issues 
relevant to the disposition of the application. An informal meeting 
would, thus, be pointless if it is held after approval time frames 
lapse and the application is deemed approved. Because the announcement 
of the decision on a

[[Page 64141]]

meeting obviously must precede the approval of the application, the OTS 
has not added the suggested provision.\5\
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    \5\ Where an application is subject to a completeness review 
under Sec. 516.2(c), the OTS will generally advise applicants and 
commenters of the informal meeting before deeming the application 
complete.
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    The OTS will invite the applicant and the commenter filing the 
request to the informal meeting. The OTS may also invite any other 
interested persons to attend. The OTS will inform meeting participants 
of the date, time, location and format for the meeting a reasonable 
time in advance of the meeting. See final Sec. 516.170(c). The OTS may 
select any format for the meeting. See final Sec. 516.170(d). An 
informal meeting may encompass an array of forums including, but not 
limited to, an informal telephone conference call or a face-to-face 
meeting.
    One commenter suggested that any announcement of additional 
proceedings should identify all persons invited to the conference and 
the substance of the comments received. The commenter asserted that 
this procedure would allow the applicant to prepare for, and to contact 
appropriate persons before the conference. The OTS does not follow a 
specific format for informing participants of the informal meeting. 
Rather, the OTS will advise participants using an appropriate method 
for the meeting. For example, if the OTS determines that an issue may 
be resolved in a telephone conference, the OTS would not necessarily 
issue a written notice. Instead, the OTS might place an advance 
telephone call informing the participants of the date and time of the 
conference call. By contrast, where another type of meeting is 
selected, the notice may include some or all of the elements identified 
by the commenter.
    The OTS anticipates that informal meetings will be adequate to 
facilitate the resolution of issues in most proceedings. However, the 
OTS recognizes that it may encounter situations where formal meetings 
may be necessary. Accordingly, the final rule recognizes that an 
informal meeting may progress to a formal meeting before a presiding 
officer under Sec. 516.180. Accordingly, within three days after the 
informal hearing, any participant in the informal meeting may request 
the OTS to hold a formal meeting. See final Sec. 516.170(e). The 
participant making the request should describe the nature of the issues 
or facts to be presented and the reasons why a formal meeting is 
necessary to make an adequate presentation of the facts or issues. The 
request must be filed with the OTS and copies must be sent to other 
participants in the informal meeting.
Section 516.180--What Procedures Govern Formal Meetings on 
Applications?
    If a participant in the informal meeting files a request for a 
formal meeting under Sec. 516.170(e), the OTS will grant the request. 
Additionally, the OTS may hold a formal meeting on its own initiative, 
if it determines that written submissions and informal meetings are 
insufficient to adequately present issues or facts to the OTS, or that 
a formal meeting would otherwise benefit the decisionmaking process. 
The OTS may limit the issues considered at the formal meeting to issues 
it deems relevant or material. See final Sec. 516.180(a).
    The OTS anticipates that most formal meetings will follow an 
informal meeting. Accordingly, the OTS will not grant a request for a 
formal meeting, unless an informal meeting has been conducted under 
Sec. 516.170. However, there may be occasions where the informal 
meeting may be unnecessary. Under these or other circumstances, the OTS 
may elect to use its authority to conduct a formal meeting on its own 
initiative.
    The OTS will announce formal meetings by issuing a Notice of Formal 
Meeting. The Notice will state the subject and date of the filing, the 
time and place of the formal meeting, and the issues to be addressed. 
The OTS will send the Notice to the applicant and any commenter 
requesting a formal meeting. The OTS may invite other interested 
persons to participate in the formal meeting by sending the Notice to 
such persons. See final Sec. 516.180(b).
    Paragraph (c) addresses who may participate in a formal meeting. A 
person receiving a Notice must notify the OTS of its intent to 
participate in the formal meeting within ten days after the OTS issues 
the Notice. At least five days before the formal meeting, all 
participants must provide the names of their witnesses and copies of 
their proposed exhibits to the OTS, the applicant and any other person 
designated by the OTS.
    Section 516.180 (d) and (e) govern the conduct of the formal 
meeting. Under Sec. 516.180(e), the OTS will appoint a presiding 
officer to conduct a formal meeting. The presiding officer is 
responsible for all procedural questions not governed by Sec. 516.180. 
Subject to the rulings of the presiding officer, the participants may 
make opening statements and present witnesses, material and data. All 
presenters of documentary material must furnish copies of the material 
to the OTS and to each other participant. The OTS will arrange for a 
transcript of the formal meeting. Each participant must bear the cost 
of the transcript that it requests for its use. See final 
Sec. 516.180(d). Section 516.180(e)(2) provides that certain rules 
governing the conduct of formal meetings and presentation of evidence 
do not apply to formal meetings held under Sec. 516.180.
    The rule does not address such procedural issues as whether the 
formal meeting will be public or private. Two commenters advocated the 
addition of a provision mandating public hearings whenever a public 
meeting is requested. These commenters noted that public hearings 
provide opportunities for all citizens to offer their views, including 
senior citizens, public housing residents and others. These commenters 
also noted that this change would align OTS procedures more closely to 
those of the other banking agencies.
    Commenters have always had the ability to request public hearings 
on issues involving the application, and the OTS has had the discretion 
whether or not to hold such hearings.\6\ The ability of members of the 
public to request public hearings, and the OTS's discretion to hold 
public hearings, is not affected by this final rule. The final rule 
would continue to permit the agency to hold a public formal meeting.
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    \6\ See Op. Chief Counsel (November 24, 1993).
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Section Sec. 516.190--Will a Meeting Affect Application Processing Time 
Frames?
    The proposed rule at Sec. 516.5(b)(2) stated that if the OTS timely 
notifies the applicant that it intends to hold a conference, the OTS 
would temporarily suspend applicable time periods for automatic 
approval of the application. Two commenters supported this provision.
    The final rule at Sec. 516.190 adopts the proposed rule with minor 
editorial changes. The final rule provides for suspension of 
application processing time frames if the OTS has arranged an informal 
or formal meeting. The time periods will resume when the OTS determines 
that a record has been developed that sufficiently supports a 
determination on the issues raised in the comments.

C. Conforming Amendments to Related Provisions

    The proposed rule included conforming amendments to Secs. 543.2, 
545.92, 545.95, 552.2-1, 552.2-2 and 556.5. Commenters had the 
following comments on these conforming changes.

[[Page 64142]]

1. Duplicative Publication Requirements
    One commenter observed that the publication of notice provisions in 
proposed Secs. 543.2(d)(1), 545.92(d)(1), 552.2-1(a)(1) and 563.22(e) 
are unnecessarily duplicative. The commenter urged the OTS to 
consolidate these provisions into a single regulation under Part 516. 
The commenter noted that this approach would streamline the OTS 
regulations and more closely conform OTS regulations to the procedural 
regulations of the other banking agencies.
    The OTS agrees that the cited publication requirements are 
unnecessarily duplicative and has consolidated Secs. 543.2(d)(1), 
545.92(d)(1), 552.2-1(a)(1) and 563.22(e)(1) into a new subpart under 
Part 516. New Subpart B uses the same plain language drafting 
techniques as used in Subparts C and D.
    The proposed rules would have required an applicant to publish the 
notice of the filing of the application no earlier than three days 
before and no later than the date of the filing of the application. See 
proposed Secs. 543.2(d)(1), 545.92(d)(1) and 552.2-1(a)(1). Various 
commenters suggested that this three-day publication requirement should 
be modified to require publication as soon as possible after filing of 
the application, or extended to require publication within 7, 10, or 30 
days of the filing of the application.
    The OTS has concluded that the proposed three day requirement may 
be too onerous under certain circumstances, such as where local 
newspapers are published on a weekly basis. Unfortunately, uniformity 
with the other bank regulatory agencies on this issue is impossible, 
since each bank regulatory agency has established different publication 
requirements.\7\ Nonetheless, the OTS has decided to adopt the FRB's 
practice of requiring the filing of the application within seven days 
after the publication of the newspaper notice. See final Sec. 516.60. 
This change does not affect the 30-day comment period. As noted above, 
the final rule has been revised so that the comment period begins on 
the date that the application is filed rather than the date of the 
newspaper notice. See final Sec. 516.140(a).
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    \7\ The OCC requires publication on the date of filing or as 
soon as possible thereafter. 12 CFR 5.8(a). The FDIC generally 
requires publication no earlier than 30 days before filing, and no 
later than the date of filing. 12 CFR 303.6(f)(1)(ii). The FRB 
generally requires filing within seven days of publication. 12 CFR 
262.3(b).
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2. Posting Requirement
    Section 545.95 addresses changes of permanent locations and 
redesignations of home and branch offices by federal associations. The 
current rule requires an applicant to post a notice of the application 
for 17 days from the date of the publication of the newspaper notice--a 
period that is equal to the extended comment period under current 
application processing procedures. The proposal would have required the 
applicant to post a notice of an application for 25 days from the date 
of first publication. This time period would more closely track the 25-
day revised comment period.
    One commenter argued that Sec. 545.95 unnecessarily duplicates the 
Federal Deposit Insurance Act (``FDIA'') provisions on branch closures, 
which require posting for 30 days and sending customer notices 90 days 
before closure.\8\ See FDIA Section 42 (12 U.S.C. 1831r-1). The 
purposes of the two posting requirements differ. The posting 
requirement under Sec. 545.95 is intended to allow customers the 
opportunity to comment on a proposed application to change an office 
location or redesignate a home or branch office. The FDIA posting 
requirement, on the other hand, is intended to provide notice to 
customers of the proposed date of closing of a branch and to identify 
where customers may obtain services following that date. Since the 
purposes of the two notices differ, both requirements will continue to 
be applicable. However, the OTS would not object if an institution were 
to combine the two notices, provided the combined notice clearly 
complies with the notification, posting and timing requirements under 
Sec. 545.95 and the FDIA. Any combined posting should indicate that 
consummation of the transaction is contingent on OTS review.
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    \8\ This commenter also questions whether the posting 
requirement has any applicability for short distance relocations. 
The posting requirement at Sec. 545.95(b)(1)(ii) does not apply to 
short distance relocations. See existing Sec. 545.95(c).
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3. Branching by Federal Savings Associations
    The OTS policy statement on branching by federal savings 
associations is found at Sec. 556.5. The OTS proposed to revise this 
section to include a cross citation indicating that the procedures for 
commenting on applications are set forth in Part 516 and Part 563e.
    A commenter asserted that the proposed amendment was confusing and 
suggested the deletion of the cross-reference to Part 563e. The OTS 
modified this reference to specifically cite the applicable regulations 
at 12 CFR 563e.29 (c) and (d).

D. Related Issues

1. Availability of Applications
    Two commenters offered a number of suggestions designed to improve 
the availability of OTS information on applications. The OTS has been 
working on this issue for some time. The agency began publishing a list 
of pending applications on its web site on August 12, 1997. The list is 
updated daily and is available at http://www.ots.treas.gov under 
``Public Information'' and ``Industry Data.'' Additionally, major new 
applications are highlighted under the ``Significant New Applications'' 
page.
2. Publication of OTS Decisions on Applications
    One commenter urged the OTS to publish its decisions on 
applications. The commenter noted that this change would conform the 
OTS practices to those of the FRB which publishes its decisions in the 
Federal Reserve Bulletin.
    While the OTS will not publish the text of its decisions, it 
intends to continue its current practice of simultaneously informing 
the applicant and any commenters of the disposition of an application. 
In addition, the OTS intends to modify its web site to indicate whether 
applications have been granted or denied. If a commenter or any other 
member of the public wishes to obtain a copy of the public portion of 
an OTS decision, it may do so by contacting the OTS's Information 
Services Division.
3. Targeted CRA Exams
    One commenter suggested that OTS should implement the OCC's policy 
of conducting targeted CRA examinations when CRA issues are raised by a 
commenter and the issues were not addressed in the last examination.
    The OTS conducts regular CRA examinations on a set cycle. In most 
cases, the OTS has a timely assessment of CRA performance available in 
connection with processing an application. Where an applicant's CRA 
record is not current, however, the OTS may conduct a targeted CRA 
review to obtain the information necessary to access performance.

III. Executive Order 12866

    The Director of the OTS has determined that this final rule does 
not constitute a ``significant regulatory

[[Page 64143]]

action'' for the purposes of Executive Order 12866.

IV. Regulatory Flexibility Act Analysis

    The OTS certified that the proposed rule would not have a 
significant economic impact on a substantial number of small entities 
under section 605(b) of the Regulatory Flexibility Act. One commenter 
disagreed with this certification. The commenter argued that the 
proposal would make it substantially more difficult for small 
communities to comment on applications because these communities rarely 
have CRA expertise.
    The OTS disagrees. The final rule should make it easier for small 
entities, including small communities, to comment on applications. The 
final rule provides guidance as to the content of the comments to be 
filed and expands the time period for the receipt of such comments. 
Thus, the final rule should provide small entities with a greater 
opportunity to file comments. Moreover, the rule permits commenters to 
participate in informal and formal meetings with the applicant and the 
OTS.
    Accordingly, pursuant to section 605(b) of the Regulatory 
Flexibility Act, the OTS certifies that this final rule will not have a 
significant economic impact on a substantial number of small entities. 
The final rule will enable the OTS to process applications received 
from all applicants, including small savings associations and other 
small entities, more expeditiously. It also allows all entities, 
including small entities, a longer period in which to submit comments 
on applications.

V. Paperwork Reduction Act of 1995

    The information collection requirements contained in this rule are 
found at 12 CFR 516.50-80, 516.100-190, 543.2, 545.92, 545.95, 552.2-1, 
and 563.22. All of the collections of information, except those found 
in Secs. 516.50-80 and Secs. 516.100-190, have been previously approved 
by the Office of Management and Budget and the burden under them 
remains unchanged under this rule (OMB Control Nos. 1550-0005, 1550-
0006, and 1550-0016). The requirements in new Secs. 516.50-80 and 
Secs. 516.100-190 were previously found in several of the sections 
mentioned above. New Secs. 516.50-80 and Secs. 516.100-190 do not add 
any additional burden and the new citations will be added to the 
approved packages under OMB Control Nos. 1550-0005, 1550-0006, and 
1550-0016 by Paperwork Reduction Act Change Worksheet.
    Respondents/recordkeepers are not required to respond to the 
collections of information unless the collection displays a currently 
valid OMB control number.

VI. Unfunded Mandates Act of 1995

    Section 202 of the Unfunded Mandates Reform Act of 1995, Public Law 
104-4 (Unfunded Mandates Act), requires that an agency prepare a 
budgetary impact statement before promulgating a rule that includes a 
federal mandate that may result in expenditure by state, local, and 
tribal governments, in the aggregate, or by the private sector, of $100 
million or more in any one year. If a budgetary impact statement is 
required, section 205 of the Unfunded Mandates Act also requires an 
agency to identify and consider a reasonable number of regulatory 
alternatives before promulgating a rule. This final rule simplifies 
existing procedures and should reduce regulatory burden. The OTS has 
determined that the final rule will not result in expenditures by 
state, local or tribal governments or by the private sector of $100 
million or more. Accordingly, this rulemaking is not subject to section 
202 of the Unfunded Mandates Act.

VII. Effective Date

    Section 553(d) of the Administrative Procedure Act (``APA'') 
requires an agency to publish a substantive rule at least 30 days 
before its effective date. Section 553(d)(1) of the APA, however, 
permits an agency to waive the normal 30-day delay in effective date 
for good cause or when a rule relieves a restriction.
    The final rule is exempt from the 30-day delayed effective date 
requirement. Initially, we note that the 30-day delayed effective date 
requirement applies only to substantive rulemaking. Today's rule is 
primarily a procedural rule that regulates the manner in which 
applicants and commenters present their viewpoints on pending 
applications to the OTS. Moreover, to the extent that the rule may have 
any impact on the rights or interest of any party, the rule relieves 
restrictions by streamlining the public comment process.

List of Subjects

12 CFR Part 516

    Administrative practice and procedure, Reporting and recordkeeping 
requirements, Savings associations.

12 CFR Part 543

    Reporting and recordkeeping requirements, Savings associations.

12 CFR Part 545

    Accounting, Consumer protection, Credit, Electronic funds 
transfers, Investments, Reporting and recordkeeping requirements, 
Savings associations.

12 CFR Part 552

    Reporting and recordkeeping requirements, Savings associations, 
Securities.

12 CFR Part 556

    Savings associations.

12 CFR Part 563

    Accounting, Advertising, Crime, Currency, Investments, Reporting 
and recordkeeping requirements, Savings associations, Securities, 
Surety bonds.

    Accordingly, the Office of Thrift Supervision amends title 12, 
chapter V, of the Code of Federal Regulations as set forth below:

PART 516--APPLICATION PROCESSING GUIDELINES AND PROCEDURES

    1. The authority citation for part 516 is revised to read as 
follows:

    Authority: 5 U.S.C. 552, 559; 12 U.S.C. 1462a, 1463, 1464, 2901 
et seq.

    2. Existing Secs. 516.1, 516.2 and 516.3 are redesignated as 
subpart A, and the subpart heading is added to read as follows:

Subpart A--Application Processing Guidelines


Sec. 516.2  [Amended]

    3. Section 516.2(c)(6) is removed and reserved.
    4. Subpart B, consisting of Secs. 516.50 through 516.80, is added 
to read as follows:

Subpart B--Publication Requirements

Sec.
516.50  Who must publish a public notice of an application?
516.60  When must I publish the public notice?
516.70  Where must I publish the public notice?
516.80  What language must I use in my publication?

Subpart B--Publication Requirements


Sec. 516.50  Who must publish a public notice of an application?

    This subpart applies whenever an OTS regulation requires an 
applicant (``you'') to follow the public notice procedures in this 
subpart.

[[Page 64144]]

Sec. 516.60  When must I publish the public notice?

    You must publish a public notice of the application no earlier than 
seven days before and no later than the date of filing of the 
application.


Sec. 516.70  Where must I publish the public notice?

    You must publish the notice in a newspaper having a general 
circulation in the following communities:
    (a) The community in which your home office(s) are located, or if 
you are filing an application for permission to organize, the community 
in which your home office will be located; and
    (b) If you are filing a branch application, the community to be 
served by the branch office.


Sec. 516.80  What language must I use in my publication?

    (a) English. You must publish the notice in a newspaper printed in 
the English language.
    (b) Other than English. If the OTS determines that the primary 
language of a significant number of adult residents of the community is 
a language other than English, the OTS may require that you 
simultaneously publish additional notice(s) in the community in the 
appropriate language(s).
    5. Subpart C, consisting of Secs. 516.100 through 516.150, is added 
to read as follows:

Subpart C--Comment Procedures

Sec.
516.100  What does this subpart do?
516.110  Who may submit a written comment?
516.120  What information should I include in my comment?
516.130  Where do I file my comment?
516.140  When do I file my comment?
516.150  Will I have additional opportunities to discuss the 
application?

Subpart C--Comment Procedures


Sec. 516.100  What does this subpart do?

    This subpart contains the procedures governing the submission of 
public comments on certain types of applications or notices 
(``applications'') pending before the OTS. It applies whenever a 
regulation incorporates the procedures in this subpart, or where 
otherwise required by the OTS.


Sec. 516.110  Who may submit a written comment?

    Any person (``you'') may submit a written comment supporting or 
opposing an application.


Sec. 516.120  What information should I include in my comment?

    (a) Your comment should recite relevant facts, including any 
demographic, economic, or financial data, supporting your position. If 
you file a comment opposing an application, your comment should also:
    (1) Address at least one of the reasons a relevant regulation lists 
as to why the OTS may deny an application;
    (2) Recite any relevant facts and supporting data addressing these 
reasons; and
    (3) Address how the approval of the application could harm you or 
any community.
    (b) If you wish to request an informal meeting under Sec. 516.170, 
you must file a request with your comment. You should describe the 
nature of the issues or facts to be discussed and the reasons why 
written submissions are insufficient to adequately address these facts 
or issues.


Sec. 516.130  Where do I file my comment?

    You must file your comment with the OTS office(s) set forth at 
Sec. 516.1(c). If you request an informal meeting under Sec. 516.170, 
you must simultaneously send a copy of the request to the applicant.


Sec. 516.140  When do I file my comment?

    (a) General. Except as provided in paragraph (b) of this section, 
you must file a written comment with the OTS within 25 days after the 
application is filed with the OTS.
    (b) Late-filed comments. The OTS will consider your late-filed 
comment if:
    (1) Within the comment period, you demonstrate to the OTS good 
cause why you could not submit a timely comment; and
    (2) The OTS concludes that your comment addresses a significant 
regulatory concern and will assist in disposing of the application.


Sec. 516.150  Will I have additional opportunities to discuss the 
application?

    The OTS may provide you with additional opportunities to discuss 
the application in informal or formal meetings under subpart D of this 
part.
    6. Subpart D, consisting of Secs. 516.160 through 516.190, is added 
to read as follows:

Subpart D--Meeting Procedures

516.160  What does this subpart do?
516.170  What procedures govern informal meetings on applications?
516.180  What procedures govern formal meetings on applications?
516.190  Will a meeting affect application processing time frames?

Subpart D--Meeting Procedures


Sec. 516.160  What does this subpart do?

    This subpart contains informal and formal meeting procedures. It 
applies whenever a regulation incorporates the procedures in this 
subpart, or when otherwise required by the OTS.


Sec. 516.170  What procedures govern informal meetings on applications?

    (a) When will the OTS arrange an informal meeting? The OTS may 
arrange an informal meeting with the applicant, commenters, or any 
other interested persons to clarify and narrow the issues and to 
facilitate the resolution of the issues. If a commenter has filed a 
written request for an informal meeting containing the information 
described at Sec. 516.120(b), the OTS will arrange an informal meeting. 
The OTS also may arrange an informal meeting on its own initiative.
    (b) What action will the OTS take on an informal meeting request? 
The OTS will inform the applicant and commenters requesting an informal 
meeting of the OTS decision on a request for an informal meeting, or of 
its decision to hold an informal meeting on its own initiative.
    (c) How will the OTS inform the informal meeting participants of 
the date, time, location and format for the informal meeting? The OTS 
will invite the applicant and the commenter filing the request for the 
informal meeting. The OTS may also invite any other interested persons 
to attend. The OTS will inform the participants of the date, time, 
location, and format for the informal meeting a reasonable time in 
advance of the informal meeting.
    (d) What procedures will govern the conduct of the informal 
meeting? The OTS may hold informal meetings in any format, including a 
telephone conference or face-to-face meeting.
    (e) Will there be an additional opportunity to discuss the 
application? Within three days after the informal meeting, any 
participant in the informal meeting may request the OTS to hold a 
formal meeting under Sec. 516.180. The participant should describe the 
nature of the issues or facts to be presented and the reasons why a 
formal meeting is necessary to make an adequate presentation of the 
facts or issues. The participant must file the request with the OTS and 
send copies of the request to other participants in the informal 
meeting.


Sec. 516.180  What procedures govern formal meetings on applications?

    (a) When will the OTS hold a formal meeting? The OTS will not grant 
a request for a formal meeting unless an informal meeting has been 
conducted under Sec. 516.170. The OTS will grant all requests for a 
formal meeting filed under Sec. 516.170(e). The OTS may also

[[Page 64145]]

hold a formal meeting on its own initiative, if it determines that 
written submissions and informal meetings are insufficient to 
adequately present issues or facts to the OTS, or that a formal meeting 
would otherwise benefit the decisionmaking process. The OTS may limit 
the issues considered at the formal meeting to issues that the OTS 
deems relevant or material.
    (b) How will the OTS announce the formal meeting? The OTS will 
issue a Notice of Formal Meeting that will state the subject and date 
of the filing, the time and place of the formal meeting and the issues 
to be addressed. The OTS will send the Notice to the applicant and any 
person requesting a formal meeting under Sec. 516.170(e). The OTS may 
also invite other interested persons to participate in the formal 
meeting by sending the Notice to such persons.
    (c) Who may participate in the formal meeting? A person receiving a 
Notice must notify the OTS of its intent to participate within ten days 
after the OTS issues the Notice. At least five days before the formal 
meeting, all participants in the formal meeting must provide the names 
of their witnesses and copies of proposed exhibits to the OTS, the 
applicant, and any other person designated by the OTS.
    (d) Will the formal meeting be transcribed? The OTS will arrange 
for a transcript. Each participant must bear the cost of any copies of 
the transcript it requests for its use.
    (e) What procedures govern the conduct of the formal meeting? (1) 
The OTS will appoint a presiding officer to conduct the formal meeting. 
The presiding officer is responsible for all procedural questions not 
governed by this section. Subject to the rulings of the presiding 
officer, a participant may make opening statements and present 
witnesses, material and data. If a participant presents documentary 
material, it must furnish copies of the material to the OTS and to each 
other participant. The OTS may keep the formal meeting record open for 
additional information for up to 14 days following the receipt of the 
transcript.
    (2) The Administrative Procedure Act (5 U.S.C. 551 et seq.), the 
Federal Rules of Evidence (28 U.S.C. Appendix), the Federal Rules of 
Civil Procedure (28 U.S.C. Rule 1 et seq.) and the OTS Rules of 
Practice and Procedure in Adjudicatory Proceedings (12 CFR part 509) do 
not apply to formal meetings under this section.


Sec. 516.190  Will a meeting affect application processing time frames?

    If the OTS has arranged a meeting, it will suspend applicable 
application processing time frames, including the time frames for 
deeming an application complete and the applicable approval time frames 
specified in Sec. 516.2 or 516.3. The time period will resume when the 
OTS determines that a record has been developed that sufficiently 
supports a determination on the issues raised in the comments.

PART 543--INCORPORATION, ORGANIZATION, AND CONVERSION OF FEDERAL 
MUTUAL ASSOCIATIONS

    7. The authority citation for part 543 continues to read as 
follows:

    Authority: 12 U.S.C. 1462, 1462a, 1463, 1464, 1467a, 2901 et 
seq.

    8. In Sec. 543.2, paragraph (c) is removed and reserved and 
paragraphs (d)(1), (d)(3), (d)(4), (e), (f) and (h)(1) are revised to 
read as follows:


Sec. 543.2  Application for permission to organize.

* * * * *
    (d) * * *
    (1) The applicant must publish a public notice of the application 
to organize in accordance with the procedures specified in subpart B of 
part 516 of this chapter.
* * * * *
    (3) The OTS shall give notice of the application to the State 
official who supervises savings associations in the State in which the 
new association is to be located.
    (4) Any person may inspect the application and all related 
communications at the Regional Office during regular business hours, 
unless such information is exempt from public disclosure.
    (e) Submission of comments. Commenters may submit comments on the 
application in accordance with the procedures specified in subpart C of 
part 516 of this chapter.
    (f) Meetings. The OTS may arrange informal or formal meetings in 
accordance with the procedures specified in subpart D of part 516 of 
this chapter.
* * * * *
    (h) * * *
    (1) Applications for permission to organize an interim Federal 
savings association are not subject to paragraphs (d), (e), (f) or 
(g)(2) of this section.
* * * * *

PART 545--OPERATIONS

    9. The authority citation for part 545 continues to read as 
follows:

    Authority: 12 U.S.C. 1462a, 1463, 1464, 1828.

    10. In Sec. 545.92, paragraphs (d), (e) heading, (e)(2) and (f) are 
revised, and paragraphs (i) and (j) are removed to read as follows:


Sec. 545.92  Branch offices.

* * * * *
    (d) Processing of applications/notices. Processing of applications 
and notices shall be subject to the following procedures:
    (1) Publication. (i) A federal savings association must publish a 
public notice of the branch application or notice in accordance with 
the procedures specified in subpart B of part 516 of this chapter.
    (ii) Promptly after publication of the public notice, the savings 
association shall transmit copies of the public notice and publisher's 
affidavit of publication to the OTS.
    (iii) The application or notice and all related communications may 
be inspected by any person at the Regional Office during regular 
business hours, unless such information is exempt from public 
disclosure.
    (2) Submission of application or notice. A Federal savings 
association must comply with Sec. 556.5 of this chapter and shall file 
the application required under Sec. 516.3(b)(2) of this chapter or the 
notice required under Sec. 516.3(a) of this chapter within three days 
after the publication of the public notice under paragraph (d)(1) of 
this section.
    (3) Submission of comments. Commenters may submit comments on the 
application or notice in accordance with the procedures specified in 
subpart C of part 516 of this chapter.
    (4) Meetings. The OTS may arrange informal or formal meetings in 
accordance with the procedures specified in subpart D of part 516 of 
this chapter.
    (e) Approval of branch application.
 * * * * *
    (2) An application shall be deemed to be approved 30 days after 
notification that the application is complete, unless the OTS suspends 
the applicable processing time frames under Sec. 516.190 of this 
chapter, or the OTS objects to the application on the grounds set forth 
under paragraph (e)(1) of this section.
    (f) Approval of branch notice. A notice filed by a Federal savings 
association that qualifies for expedited treatment shall be deemed to 
be approved 30 days after its filing with the OTS, unless the OTS 
suspends the applicable processing time frames under Sec. 516.190 of 
this chapter; the OTS objects to the application on the grounds set 
forth in paragraph (e)(1) of this section; or the OTS determines to

[[Page 64146]]

process the filing as an application under Sec. 516.3(a)(3) of this 
chapter. If the OTS suspends the applicable processing time frames, the 
savings association may not open a branch until the OTS provides a 
notification of its approval.
 * * * * *
    11. In Sec. 545.95, paragraph (a) and paragraph (b)(1)(ii) are 
revised to read as follows:


Sec. 545.95  Change of office location and redesignation of offices.

    (a) Eligibility. A Federal savings association may change the 
permanent location of its home office or any approved branch office, or 
redesignate a home or branch office subject to the appropriate 
expedited or standard treatment procedures for establishing a branch 
office set forth in Sec. 545.92 of this part.
    (b) * * *
    (1) * * *
    (ii) The applicant shall post notice of the application for 25 days 
from the date of first publication in a prominent location in the 
office to be closed or redesignated.
 * * * * *

PART 552--INCORPORATION, ORGANIZATION, AND CONVERSION OF FEDERAL 
STOCK ASSOCIATIONS

    12. The authority citation for part 552 continues to read as 
follows:

    Authority: 12 U.S.C. 1462, 1462a, 1463, 1464, 1467a.

    13. Section 552.2-1 is amended by revising paragraph (a) to read as 
follows:


Sec. 552.2-1  Procedure for organization of Federal stock association.

    (a) Application for permission to organize. Applications for 
permission to organize a Federal stock association are subject to this 
section and to Sec. 543.3 of this chapter. Recommendations by employees 
of the OTS regarding applications for permission to organize are 
privileged, confidential, and subject to Sec. 510.5 (b) and (c) of this 
chapter. The processing of an application under this section shall be 
subject to the following procedures:
    (1) Publication. (i) The applicant shall publish a public notice of 
the application to organize in accordance with the procedures specified 
in subpart B of part 516 of this chapter.
    (ii) Promptly after publication of the public notice, the applicant 
shall transmit copies of the public notice and publisher's affidavit of 
publication to the OTS in the same manner as the original filing.
    (iii) Any person may inspect the application and all related 
communications at the Regional Office during regular business hours, 
unless such information is exempt from public disclosure.
    (2) Notification to interested parties. The OTS shall give notice 
of the application to the State official who supervises savings 
associations in the State in which the new association is to be 
located.
    (3) Submission of comments. Commenters may submit comments on the 
application in accordance with the procedures specified in subpart C of 
part 516 of this chapter.
    (4) Meetings. The OTS may arrange informal or formal meetings in 
accordance with the procedures specified in subpart D of part 516 of 
this chapter.
* * * * *
    14. Section 552.2-2 is amended by revising paragraph (a) to read as 
follows:


Sec. 552.2-2  Procedures for organization of interim Federal stock 
association.

    (a) Applications for permission to organize an interim Federal 
savings association are not subject to subparts B, C and D of part 516 
of this chapter or Sec. 552.2-1(b)(3) of this part.
* * * * *

PART 556--STATEMENTS OF POLICY

    15. The authority citation for part 556 continues to read as 
follows:

    Authority: 5 U.S.C. 552, 559; 12 U.S.C. 1464, 1701j-3; 15 U.S.C. 
1693-1693r.

    16. Section 556.5 is amended by revising paragraph (c)(4) to read 
as follows:


Sec. 556.5  Branching by Federal savings associations.

* * * * *
    (c) * * *
    (4) Comment procedures. Comments on applications for branches must 
be submitted in writing and factually documented. Comment procedures 
are set forth in subpart C of part 516 of this chapter, Sec. 563e.29 
(c) and (d) of this chapter, the OTS Application Processing Handbook, 
and other supervisory guidance issued by the OTS.
* * * * *

PART 563--OPERATIONS

    17. The authority citation for part 563 continues to read as 
follows:

    Authority: 12 U.S.C. 375b, 1462, 1462a, 1463, 1464, 1467a, 1468, 
1817, 1828, 3806; 42 U.S.C. 4012a, 4104a, 4104b, 4106, 4128.

    18. Section 563.22 is amended by revising paragraphs (e)(1), (e)(4) 
and (f)(3) to read as follows:


Sec. 563.22  Merger, consolidation, purchase or sale of assets, or 
assumption of liabilities.

* * * * *
    (e)(1) Unless the OTS finds that it must act immediately in order 
to prevent the probable default of one of the savings associations 
involved, the applicant must publish a public notice of the application 
in accordance with the procedures specified in subpart B of part 516 of 
this chapter. In addition to initial publication, the applicant must 
publish on a weekly basis during the period allowed for furnishing 
reports under paragraph (e)(2) of this section.
* * * * *
    (4) Commenters may submit comments on the application in accordance 
with the procedures set forth in subpart C of part 516 of this chapter, 
except that comments may be submitted at any time during the period 
described in paragraph (e)(2) of this section. The OTS may arrange 
informal or formal meetings in accordance with the procedures set forth 
in subpart D of part 516 of this chapter.
* * * * *
    (f) * * *
    (3) The OTS suspends the applicable processing time frames under 
Sec. 516.190 of this chapter;
* * * * *
    Dated: November 26, 1997.

    By the Office of Thrift Supervision.
Ellen Seidman,
Director.
[FR Doc. 97-31612 Filed 12-3-97; 8:45 am]
BILLING CODE 6720-01-M