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Federal Document Clearing House
Congressional Testimony
July 24, 2002 Wednesday
SECTION: CAPITOL HILL HEARING TESTIMONY
LENGTH: 4894 words
COMMITTEE:
HOUSE FINANCIAL SERVICES
SUBCOMMITTEE:
FINANCIAL INSTITUTIONS AND CONSUMER CREDIT
HEADLINE:
BANKS AND REAL ESTATE
BILL-NO:
H.R. 865 Retrieve Bill Tracking Report
Retrieve Full Text of Bill
TESTIMONY-BY:
JOHN TAYLOR, PRESIDENT AND CEO
AFFILIATION: NATIONAL
COMMUNITY REINVESTMENT COALITION
BODY: TESTIMONY OF
JOHN TAYLOR President and Ceo On Behalf of the National Community Reinvestment
Coalition
Subcommittee on Financial Institutions and Consumer Credit of
the House Financial Services Committee
July 24, 2002
Good
morning Chairman Bachus, Representative Waters, and distinguished members of the
Subcommittee on Financial Institutions and Consumer Credit. My name is John
Taylor, and I am president and CEO of the National Community Reinvestment
Coalition (NCRC). NCRC is a national trade association representing more than
700 community-based organizations and local public agencies who work daily to
promote economic justice in America and to increase fair and equal access to
credit, capital, and banking services to traditionally under-served populations
in both urban and rural areas. NCRC has represented our nation's communities on
the Federal Reserve Board's Consumer Advisory Council (CAC), Community
Development Financial Institutions (CDFI) Advisory Board, Freddie Mac's Housing
Advisory Council, Fannie Mae's Housing Impact Council and before the United
States Congress.
On behalf NCRC, I thank you for the opportunity to
testify before you here today on an important issue that will impact our
nation's progress in extending the American Dream of homeownership to minority
and low-and moderate- income families: banks becoming real estate brokers.
NCRC's community organizations are at the helm driving the reinvestment
movement. Today, as a result of fair lending laws like the Community
Reinvestment Act (CRA), which turns 25 this year, poor neighborhoods have been
empowered by bank partnerships with community organizations to address credit
needs and missed market opportunities. As a result, the number of loans to
minority and working class borrowers over the last decade has increased faster
than the number of loans to more affluent borrowers.1 Bank CRA commitments have
grown from a few million dollars a year to over $
50 billion
annually.2 Without these loans and commitments, the economic flow of private
credit and capital into our communities would be extinct and hence, certain
death for disinvested neighborhoods.
NCRC is very concerned about the
ramifications of financial holding companies and national banks entering the
real estate brokerage business. As you can imagine from the industries
represented here today, you will hear varying perspectives on banks and real
estate for consideration. I would like to emphasize that my testimony today will
focus on three areas that will be affected if the banking and real estate
industry are allowed to merge: competition, consumer protections and serving our
communities.
Competition
NCRC has always maintained the position
that competition is beneficial for the revitalization of communities. Healthy
competition provides low-income and working families with more housing and
lending options, and offers them alternatives to high- cost and abusive loans.
However, in our rapidly shifting financial marketplace in which our
largest banks now own subprime lenders and insurance agencies, we wonder whether
product choice is increasing for our communities or whether financial
conglomerates are steering consumers into costly and unnecessary products, often
layering one product on top of another to maximize their profits.
Over a
decade ago, banks had a corner on the mortgage lending business with an
overwhelming 80 percent market share.3 Today, however, is a different story. In
2001, the mortgage broker industry estimated that their market share has
dramatically grown to 65 percent of all residential mortgage originations.4 Does
this mean that banks are hurting for mortgage business? Absolutely not. Instead
of relying on loan officers, banks now depend upon mortgage brokers to make
loans in minority and low- and moderate-income communities. And too often, banks
do not engage in sufficient due diligence or do not require brokers to follow
fair lending safeguards.
The situation would deteriorate if banks now
owned a fleet of brokerage companies that combined lending and real estate
services.
The arena of competition has dramatically shifted in the wake
of Gramm-Leach-Bliley (GLB), which blurred the distinction among financial
industries. In March of 2000, the Federal Reserve Board issued a list of the
first 117 bank holding companies that elected to become financial holding
companies to take advantage of the opportunities of entering into the insurance
and securities markets. As of April 2002, over 600 bank holding companies have
elected to become financial holding companies in order to diversify their
businesses.5 Conversely, less than a dozen non-bank firms have converted to
financial holding companies for the purpose of seeking a banking charter.6 Banks
are also taking advantage of an ownership stake (less than a controlling
interest) in a financial subsidiary, meaning they form partnerships with firms
offering a plethora of financial services including: investment planning, estate
planning, asset protection, retirement planning, income tax planning and
preparation, and education planning.
To reiterate, NCRC supports
competition in its truest sense - when parties act independently and offer the
most favorable terms to secure business. But one must wonder if today's
financial market upholds the true meaning of competition when it seems like GLB
has allowed all roads to lead back to the bank. While non- bank lenders own real
estate companies, they have not utilized GLB to amass the market power that
banks now enjoy after their mad rush to become financial holding companies.
Would adding real estate to the menu of businesses that banks can own level the
playing field between banks and non-banks or only serve to make banks more
powerful to the detriment of real competition in the financial industry?
NCRC maintains that the addition of real estate to the already dizzying
array of products now offered by "financial supermarkets" will lead to even
greater consolidation of bank market power and result in fewer choices for
consumers. Our worst nightmare in a consolidated financial market that includes
real estate brokerage is:
- A bank offers favorable loan terms to its
real estate affiliate, giving it significant advantage over a competing real
estate business that does not have an affiliate.
- The bank with the
real estate affiliate stops offering loans to customers of non-affiliated real
estate competitors.
- The number of product choices offered to customers
of non- affiliated real estate businesses decreases, resulting in higher cost
loans.
During consideration of GLB, NCRC and other observers worried
that the consolidation afforded under GLB would lead to only higher prices. That
is why GLB commissioned the Department of Treasury to study the effects of
mergers among banks, insurance companies, and securities firms on access to loan
and bank products for low- and moderate-income communities. Treasury's study in
January 2001 concluded that it was too early to assess the impact on
cross-industry mergers.7 NCRC urges Congress and the federal financial
supervisory agencies to delay allowing banks to enter yet another industry,
specifically the real estate industry, until the Treasury rigorously measures
the impacts of GLB on affordability and accessibility of financial services.
When considering banks in real estate, policymakers have not adequately
addressed the negative impacts on small real estate businesses of further
industry consolidation. Women- and minorityowned small businesses have played a
significant role in community revitalization. Many of these real estate
entrepreneurs have established themselves in working class communities and
dedicated their business to helping rebuild formerly redlined neighborhoods
through partnerships with affordable homeownership programs.
According
to the most recent Economic Census, over 375,000 small women- and minorityowned
real estate businesses operate in this country, generating over
$
41 million in sales annually. The wealth generated by these
new-markets businesses plays a vital role in building a solid foundation from
which veritable community reinvestment will flourish. Local real estate brokers
are more likely than financial conglomerates to bring wealth back into their
community and enter into business relationships with other neighborhood
enterprises. The financial independence of small businesses in local communities
increases an individual's stake in the economic empowerment of a community and
improves the collective well being of our society.
NCRC strongly takes
that position that by allowing banks into the real estate business, small real
estate businesses will be forced out of the marketplace by the monopolized
"financial supermarkets." Gone will be the days in which an entrepreneur dreams
of opening a specialized financial business to serve his or her neighborhood
customers. Instead, small real estate businesses, insurance businesses and small
investment companies will be forced to make a decision: forfeit their ownership
and affiliate with a bank or face going under when a larger "financial
supermarket" opens next door. Not only will our nation's communities hurt, our
entire economy will suffer.
Consumer Protection
Existing
Problems in the Lending, Insurance and Real Estate Markets
The next area
I would like to address in regards to today's subject matter is consumer
protection. Repeatedly, I have been told by industry representatives advocating
for banks in real estate that cross-ownership within these markets will benefit
the consumer by offering greater choice, greater convenience and lower costs.
NCRC, as a leader in fighting
predatory lending, takes the
issue of "benefiting the consumer" very seriously. Last summer, NCRC testified
before the full committee during the two-day hearings on predatory mortgage
lending practices about the plague of abusive lending and equity stripping from
communities of color. Lenders are not alone at the receiving end of NCRC
criticism. Our membership organizations who are entrenched in the front lines of
protecting homeowners, also battle insurance redlining and unscrupulous real
estate "property flippers." In testifying before you today, I must be honest to
NCRC's mission of economic justice and state emphatically that injustice exists
in the banking, insurance and real estate industries. Until the problems are
solved to protect borrowers and consumers, these markets should not be
commingled.
According to the Department of Housing and Urban
Development's (HUD) just released report Black and White Disparities in Subprime
Mortgage Refinance Lending, subprime refinanc e mortgages accounted for 36.3
percent of total refinance mortgages in low-income neighborhoods compared to
23.8 percent of total refinance lending nationwide in 2000.8 Borrowers in
prominently African-American low-income neighborhoods were 1.5 times more likely
in 2000 to refinance with a subprime lender than borrowers in all low-income
neighborhoods. Borrowers in upper-income African-American neighborhoods were 2.9
times more likely to refinance with a subrpime lender than borrowers in upper
income neighborhoods overall.
NCRC research has found similar
disparities. For example, major subprime and manufactured home lenders made 47
percent of the refinance loans in predominantly African-American and Hispanic
neighborhoods in the District of Columbia in 2000, a significant increase from
39 percent of the loans in 1999 and 25 percent of the loans in 1994. In
contrast, subprime and manufactured home lenders made less than 4 percent of the
loans in predominantly white neighborhoods in the three years of the study.
Substantial evidence suggests that subprime borrowers in minority communities
experience price discrimination. Over the last several years, Home Mortgage
Disclosure Act (HMDA) data has indicated that African-American applicants are
denied twice as often as whites. NCRC believes that it does not necessarily
follow that African- American are twice as likely to have bad credit. And given
that African-Americans are denied twice as often for conventional loans as
whites, it does not follow that minority communities should be five times as
likely to receive subprime loans as documented in an earlier HUD study. 9 In
some geographical areas, the disparity is much greater than five to one.
The major secondary market institutions have found pricing
inefficiencies in subprime loans. Freddie Mac states that up to 30 percent of
subprime borrowers were creditworthy for prime loans. Fannie Mae's CEO, Franklin
Raines, is quoted as saying that half of all subprime borrowers could have
received prime loans.
A study by the Research Institute for Housing
America (RIHA) concludes that minority borrowers are more likely to receive
subprime loans after controlling for credit risk factors.11 RIHA cautions
against a conclusion that price discrimination alone explains this since
minority borrowers may have different techniques of searching for lenders.
However, considering the totality of the research by NCRC, HUD, Fannie Mae,
Freddie Mac, RIHA, and others, it seems fair to say that the burden of proof
lies with those who assert that discrimination does not occur in the subprime
market.
The issue of insurance redlining is also a problem, but unlike
home mortgage lending, insurance data is limited to only a handful of states.
Since 1995, California has required insurance companies to file data indicating
the race and gender of policyholders, the number of policies sold and cancelled,
and location of offices and agents, all sorted by ZIP code. Working with the
California Department of Insurance, consumer advocate Birny Birnbaum of the
Center for Economic Justice (CEJ) obtained data that show disparities between
the rate at which insurance companies write policies in low-income communities
and the rate at which policies are written in middle- to upper-income
communities. For example, in 1995, CEJ reported that approximately 16 percent of
California's population lived in underserved communities; however, the data
reported by State Farm revealed the company had only 2.59 percent of its agents
in those communities.12 CEJ further concluded that the average insurer wrote
only 5.57 percent of its private passenger automobile liability policies and
only 6.62 percent of its homeowners policies in low- income, minority ZIP codes.
State Farm, one of the nation's largest insurance companies, is also a
federally chartered thrift. As such, it offers a full range of banking services,
including taking deposits and making various types of home mortgage, auto and
home equity loans, in addition to full range investment products. Interestingly
enough, one month ago, State Farm, California's largest insurer of homes,
indicated it has stopped writing new homeowner policies in the state due to a
surge in the amount of claims over the last two years.13 If lawmakers add real
estate services to the roster of State Farm products, would this only increase
the clout of State Farm and other giants? Would conglomerates turn product flow
"on" or "off" in order to obtain concessions from regulatory agencies in states
dependent upon their services? As I mentioned, the real estate market is not
without its unscrupulous actors either. Property flipping involves buying a home
at a low price and then reselling it at fraudulently inflated price within a
short time frame, often after making only cosmetic improvements to the property.
NCRC has seen the following practices employed in property flipping schemes:
- Real estate investors continually buying neglected properties at
sheriff sales and reselling homes at escalated prices to unsophisticated
first-time homebuyers;
- Using real estate agents, licensed and non-
licensed individuals, as a front;
- Targeting immigrant communities,
particularly non- English speaking individuals;
- Colluding with
property appraisers to inflate property value;
- Colluding with home
inspectors to secure clean reports; and
- Tricking homeowners into
thinking they are dealing with legitimate real estate companies.
In
2000, the Department of Housing and Urban Affairs' Inspector General (IG)
testified about the rampant flipping rings the agenc y was combating. 14 One
investigation alone uncovered over 1,200 flipped loans totaling approximately
$
160 million. Twenty-five percent of the loans were in default.
The IG indicated that approximately 100 representatives of lending and real
estate industries colluded on this scheme. Another IG flipping investigation
involved a HUD employee who conspired with a real estate agent to carry out a
systematic scheme of selling HUD- owned properties at prices far below HUD's
listed price. The FHA Insurance Fund lost several million dollars as a result of
this scam. If Congress allows banks and real estate firms to combine without
strengthening the consumer protection laws, our communities are more likely to
be victims of scams than beneficiaries of greater product choice and lower
prices.
Consumer Choice
As I previously mentioned NCRC was vocal
during the consideration of Gramm-Leach-Bliley about the potential of banks
product packing without regard of true customer needs.15 Banks are not shy about
advertising their cross-marketing strategy: targeting an existing customer is
easier and more profitable than acquiring a new one.
The Bank Holding
Company Act, as amended, prohibits a bank from extending or varying the
consideration for credit on the condition that the customer obtain any other
non-banking product from the bank holding company or any other subsidiary of the
bank holding company. This prevents a bank from offering a reduced interest rate
on a loan that may be used only to purchase products made or sold by an
affiliate of the bank. However, the statute provides exceptions and exemptions
that "financial supermarkets" can take advantage of when cross-selling their
products.
Another problem for unsophisticated banking consumers is the
perception that approval of their loan is contingent on their purchasing
insurance or other products from bank affiliates. NCRC believes that banks
should not force consumers to buy unwanted or unnecessary products, nor should
they offer incentives to induce borrowers to purchase more products than they
can afford.
Last year Citibank sought and received a favorable exemption
from anti-tying prohibitions to offer incentives to their credit card, mortgage,
or loan customers who maintain a combined minimum balance in a package of
products and services that include annuities, auto, homeowners, life, and/or
long-term care insurance from insurance affiliates of Citibank.16 The incentives
would include lower interest rates and/or other items, such as airline frequent
flyer miles or contributions to accounts maintained by a customer with other
Citibank affiliates. Is it really in the best interest of the consumer to be
bombarded with credit card applications, insurance product brochures, investment
fund prospectuses and now perhaps real estate marketing materials when they go
to a bank simply to open a checking account? Allowing banks into yet another
industry would only compound the abuses associated with incentives and
inducements to purchasing an array of products.
Where are banks'
priorities when there are over 10 million Americans who do not have checking
accounts?17 Today, NCRC issues a challenge to the lenders to open your doors to
the unbanked; for every product package you market to existing customer,
dedicate the same energy to marketing Individual Development Accounts and
lifeline and low-cost accounts to underserved communities.
Finally, on
the issue of choice, NCRC is very concerned that if banks are allowed in the
real estate business, consumers using a bank affiliated real estate agent will
be at a disadvantage when attempting to shop for the best priced loan product,
particularly if a bank employs exclusivity with its affiliate.
Serving
Our Communities
The final point that I would like to address is the
stake our nation's communities have in the decision to expand banking business
lines even further to include real estate. At the start of my testimony, I
mentioned the great success story of how CRA has lead to the introduction of
bank partnerships and commitments in formerly divested communities. I would
briefly like to elaborate how CRA must be updated to cover all of the activities
that financial institutions are now permitted to undertake.
As you know,
CRA only applies to the depository subsidiaries of financial holding companies.
Other parts of the holding companies have no obligation to serve the entire
community in which they do business, including low- and moderate-income
communities. As CRA increasingly applies to a smaller portion of burgeoning
holding companies, the risk that low- and moderateincome communities will once
again become neglected - after years of steady progress in expanding
homeownership opportunities down the income ladder - increases. Despite the
Federal Reserve Board's findings in its study mandated by GLB that CRA-related
loans are profitable, financial holding companies will become tempted to
overlook low- and moderateincome markets as they enter new lines of business.
It is a travesty to each and every underserved rural community and inner
city neighborhood in our country that CRA basically ends with checking products
and lending activities. When the Unites States Congress passed GBL, it missed a
tremendous opportunity to extend community reinvestment requirements to all bank
affiliates, insurance companies and securities firms.
Thirty-six Members
of the House of Representatives support our position and have co-sponsored the
Community Reinvestment Modernization Act (H.R. 865). As an addendum to my
testimony, I have attached the first few pages of this bill detailing purposes,
findings and sections covered, and ask for your consideration of this important
measure. If the banks are allowed into the real estate market NCRC strongly
advocates for CRA coverage to be extended to the real estate affiliates to
ensure these companies have agents in low- and moderate-income communities to
serve minority and working class families. NCRC also strongly encourages
Congress to enact a strong anti- predatory law to prohibit abusive lending and
property flipping.
Real-Estate Based Lenders Lag CRA-Covered Lenders
NCRC's data analysis indicates that real estate companies that currently
own mortgage companies lag behind banks and thrifts covered by CRA in lending to
minority and low- and moderate- income communities. Using the testimony of
Philip Burns, representing the American Bankers Association on May 2 before the
Financial Services Committee of the House of Representatives, NCRC grouped the
mortgage companies that Mr. Burns listed as affiliated with real estate
companies. These mortgage companies are affiliated with the real estate firms
Long and Foster, Cendant Corporation, USAA, and GMAC. NCRC compared these real-
estate based lenders with banks and thrifts covered by the Community
Reinvestment Act (CRA) in the years 1999 and 2000, using HMDAWare software
produced by Compliance Technologies (NCRC's data analysis with detailed charts
is attached as an appendix to this testimony).
Over the two year time
period analyzed by NCRC, real estate lenders trailed banks by the greatest
extent in the category of lending to Hispanics and Blacks. In 2000, CRA-covered
lenders issued 13.1 percent of their single family loans (includes home
purchase, refinance and home improvement loans to owner- occupants) to Blacks
and Hispanics. Real-estate lenders, in contrast, issued less than half that
portion, in percentage point terms. These lenders made only 4.9 percent of their
loans to Blacks and Hispanics in 2000. In 1999, the disparities were similar.
CRA-covered lenders made 11.6 percent of their loans to Blacks and Hispanics
while real-estate based lenders issued only 5.1 percent of their loans to Blacks
and Hispanics.
In the category of lending to low- and moderate-income
borrowers (as defined in the CRA regulations of income levels up to 80 percent
of area median income), real-estate based lenders also lag behind CRA-covered
lenders by considerable margins. In 2000, CRA-covered lenders made 32.1 percent
of their single family loans to low- and moderate-income borrowers (LMI) while
real- estate lenders made only 27.7 percent of their loans to these borrowers.
The same percentage point gap of (4.4 percentage points) occurred in 1999
between the share of loans realestate based lenders and CRA-covered lenders
offered to LMI borrowers.
To the casual observer, 4 to 5 percentage
point differences in the share of loans offered by real estate and CRA-covered
lenders to LMI borrowers may not appear to be a huge difference. The
differences, however, are large and critical when considering the actual number
of loans. If CRA-covered lenders, for instance, offered the same percentage of
loans that real-estate based lenders (or 27.7 percent of their loans) to LMI
borrowers, they would have made 227,012 fewer loans to these borrowers during
2000. On the other hand, if real-estate lenders made the same percentage of
loans to LMI borrowers as CRA-covered lenders (or 32.1 percent), they would have
made 9,017 more single family loans to these borrowers. NCRC's data analysis
reveals that real- estate based lenders trail CRA-covered banks by income level
and race of census tracts. In 2000, for example, CRA-covered lenders made 12.8
percent of their single family loans in LMI census tracts. Real-estate based
lenders issued only 7.9 percent of their loans in these tracts. Likewise,
CRA-covered lenders made 8.2 percent of their single family loans in
substantially minority tracts while real-estate based lenders issued only 4.4
percent of their loans in these tracts. In 1999, real-estate based lenders
trailed by similar margins in minority and LMI tracts.
NCRC expected the
real-estate based lenders to perform better in the area of home mortgage lending
(conventional and government- insured loans to owner-occupants combined) since
realestate based- lenders have associated real estate companies dealing directly
with home buyers. Yet, NCRC found that real-estate lenders trailed CRA-covered
lenders by almost identical amounts in home mortgage lending as with overall
single- family lending. For instance, CRAcovered lenders issued 13.9 percent of
their home purchase loans to Blacks and Hispanics while real-estate lenders made
only 4.8 percent of their purchase loans to these borrowers in 2000 - almost the
identical percentages as for overall single family lending. Likewise,
CRA-covered lenders made 11.6 percent of their purchase loans in LMI tracts
while real-estate based lenders issued 7.7 percent of their loans in these
census tracts. The evidence clearly indicates that CRA has compelled banks and
thrifts to focus on low- and moderate-income borrowers as well as minority
borrowers and communities to a greater extent than real- estate based lenders.
The hard data NCRC presents today reinforces our position that Congress must
update CRA to apply to real estate companies if Congress allows further
combinations of the real estate and banking businesses.
Conclusion
In closing, I leave you with a true story of how a Realtor helped
identify a discriminatory,
predatory lending practice and
subsequently brought it to the attention of NCRC's Civil Rights Department for
assistance.
The victims were an elderly minority couple who owned their
home in the Mount Pleasant neighborhood, here in the District of Columbia, for
over 43 years. In order to pay medical expenses, an independent mortgage company
convinced the couple to take out an adjustable rate mortgage with a prepayment
penalty and a loan payment that exceeded the couple's monthly income. Faced with
imminent foreclosure, the couple was forced to consider a "short sale" of their
home. The victims retained a Realtor to facilitate the sale of the home, who
quickly identified that the appraisal conducted by the mortgage company was
substantially inflated.
Ultimately, a buyer was identified and a
purchase contract placed. Unbeknown to all the parties involved the victims had
pre- payment penalty of $
13,791.06 included in the note that
stalled the real estate transaction. It was only after victims' Realtor
requested NCRC to intervene that the sale took place.
If the real estate
agent had been affiliated with a predatory lender or any lender for that matter,
it is doubtful that the agent would have acted as an independent watchdog. When
we allow additional industry consolidation without providing stronger community
protection laws, we remove the checks and balances that guard against abuses in
power. Fewer independent businesses with stakes in their communities exist to
protect against the exploitation and plunder of greedy conglomerates.
I
thank you, Mr. Chairman, for this opportunity to testify and present the views
of the National Community Reinvestment Coalition. I will be happy to answer any
questions you may have.
LOAD-DATE: July 25,
2002