[Federal Register Volume 85, Number 17 (Monday, January 27, 2020)]
[Rules and Regulations]
[Pages 4579-4580]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-00648]


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BUREAU OF CONSUMER FINANCIAL PROTECTION

12 CFR Chapter X


Policy Statement on Compliance Aids

AGENCY: Bureau of Consumer Financial Protection.

ACTION: Policy statement.

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SUMMARY: The Bureau of Consumer Financial Protection (Bureau) is 
publishing this policy statement in order to announce a new designation 
for certain Bureau guidance, known as ``Compliance Aids,'' and to 
explain the legal status and role of guidance with that designation.

DATES: This policy statement becomes applicable on February 1, 2020.

FOR FURTHER INFORMATION CONTACT: Christopher Shelton, Counsel, or Lea 
Mosena, Senior Counsel, Legal Division, 202-435-7700. Regulatory 
inquiries can be submitted at https://reginquiries.consumerfinance.gov/. If you require this document in an 
alternative electronic format, please contact 
[email protected].

SUPPLEMENTARY INFORMATION: 

I. Background

    The Bureau's ``primary functions'' under the Dodd-Frank Wall Street 
Reform and Consumer Protection Act \1\ include issuing guidance 
implementing Federal consumer financial law.\2\ The Bureau believes 
that providing clear and useful guidance to regulated entities is an 
important aspect of facilitating markets that serve consumers.
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    \1\ [thinsp]Public Law 111-203, 124 Stat. 2081 (2010).
    \2\ 12 U.S.C. 5511(c)(5). Moreover, the Dodd-Frank Act 
authorizes the Director of the Bureau to issue guidance 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. 12 U.S.C. 
5512(b)(1). Additionally, the Bureau is authorized to establish 
general policies, including with respect to implementing the Federal 
consumer financial laws through guidance. 12 U.S.C. 5492(a)(10).
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    Since its inception, the Bureau has provided guidance through a 
variety of means, and its guidance functions have evolved and are 
continuing to evolve in response to feedback from industry and other 
stakeholders. Some examples of compliance resources that the Bureau has 
released include small entity compliance guides, instructional guides 
for disclosure forms, executive summaries, summaries of regulation 
changes, factsheets, flow charts, compliance checklists, frequently 
asked questions, and summary tables.

II. Policy Statement on Compliance Aids

    Going forward, the Bureau intends to establish a new category of 
materials that are similar to previous compliance resources but will 
now be designated as ``Compliance Aids.'' This designation will provide 
the public with greater clarity regarding the legal status and role of 
these materials, as discussed below.\3\
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    \3\ This policy statement does not apply to materials that do 
not bear the label ``Compliance Aid,'' or to the use of outdated 
materials that have been withdrawn or superseded. It also does not 
alter the status of materials that were issued before this policy 
statement, although the Bureau may re-issue certain existing 
materials as Compliance Aids if it is in the public interest and as 
Bureau resources permit. Moreover, this policy statement does not 
determine the policies of regulators other than the Bureau.
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    The Bureau does not intend to use Compliance Aids to make decisions 
that bind regulated entities. Unlike the Bureau's regulations and 
official interpretations, Compliance Aids are not ``rules'' under the 
Administrative Procedure Act.\4\ Rather, Compliance Aids present the 
requirements of existing rules and statutes in a manner that is useful 
for compliance professionals, other industry stakeholders, and the 
public.\5\ Compliance Aids may also include practical suggestions for 
how entities might choose to go about complying with those rules and 
statutes.\6\ But they may not address all situations. Where there are 
multiple methods of compliance that are permitted by the applicable 
rules and statutes, an entity can make its own business decision 
regarding which method to use, and this may include a method that is 
not specifically addressed in a Compliance Aid. In sum, regulated 
entities are not required to comply with the Compliance Aids 
themselves. Regulated entities are only required to comply with the 
underlying rules and statutes.
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    \4\ Under the Administrative Procedure Act, generally a ``rule'' 
is an agency statement of general or particular applicability and 
future effect designed to implement, interpret, or prescribe law or 
policy. 5 U.S.C. 551(4). The three main categories of rules are 
substantive rules, interpretive rules, and general statements of 
policy. Some examples of rules are regulations like Regulation Z, 12 
CFR part 1026, and official interpretations like the Official 
Interpretations to Regulation Z, 12 CFR part 1026, supp. I.
    \5\ See, e.g., Golden & Zimmerman, LLC v. Domenech, 599 F.3d 
426, 432 (4th Cir. 2010) (agency documents like FAQs that ``restate 
or report what already exists in the relevant body of statutes, 
regulations, and rulings'' are not themselves rules under the 
Administrative Procedure Act).
    \6\ See, e.g., Indus. Safety Equip. Ass'n, Inc. v. EPA, 837 F.2d 
1115, 1120-21 (D.C. Cir. 1988) (an agency's ``hortatory advice'' 
regarding potential methods for complying with a rule is not itself 
a rule under the Administrative Procedure Act).
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    Compliance Aids are designed to accurately summarize and illustrate 
the underlying rules and statutes. Accordingly, when exercising its 
enforcement and supervisory discretion, the Bureau does not intend to 
sanction, or ask a court to sanction, entities that reasonably rely on 
Compliance Aids.

II. Regulatory Requirements

    This policy statement constitutes a general statement of policy 
that is exempt from the notice and comment rulemaking requirements of 
the Administrative Procedure Act.\7\ It is intended to provide 
information regarding the Bureau's general plans to exercise its 
discretion and does not confer any rights. Because no notice of 
proposed rulemaking is required, the Regulatory Flexibility Act does 
not require an initial or final regulatory flexibility analysis.\8\ The 
Bureau has also determined that this policy statement does not impose 
any new 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.\9\
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    \7\ 5 U.S.C. 553(b). However, this is not a ``statement of 
policy'' as that term is specifically used in Regulation X, 12 CFR 
1024.4(a)(1)(ii).
    \8\ 5 U.S.C. 603(a), 604(a).
    \9\ 44 U.S.C. 3501-3521.
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    Pursuant to the Congressional Review Act,\10\ the Bureau will 
submit a report containing this policy statement and other required 
information to the United States Senate, the United States House of 
Representatives, and the Comptroller General of the United States prior 
to its applicability date. The Office of Information and Regulatory 
Affairs has designated this policy statement as not a ``major rule'' as 
defined by 5 U.S.C. 804(2).
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    \10\ 5 U.S.C. 801-808.


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    Dated: January 10, 2020.
Kathleen L. Kraninger,
Director, Bureau of Consumer Financial Protection.
[FR Doc. 2020-00648 Filed 1-24-20; 8:45 am]
 BILLING CODE 4810-AM-P