Rule: Credit Unions: Insured Credit Unions Conversion To Mutual Savings Banks Disclosures, Voting Procedures, Etc. Revisions

Friday,
December 22, 2006
Part III
National Credit
Union
Administration
12 CFR Part 708a
Conversion of Insured Credit Unions to
Mutual Savings Banks; Final Rule
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77150 Federal Register / Vol. 71, No. 246 / Friday, December 22, 2006 / Rules and Regulations
NATIONAL CREDIT UNION believes the current conversion process including credit unions, credit union
ADMINISTRATION can be improved in these areas. trade associations, bank trade
Briefly summarized, the proposal: associations, and individuals and
12 CFR Part 708a • Required a converting credit union entities associated with the conversion
to give advance notice to members that process. The final rule retains most of
RIN 3133–AD16
the board intends to vote on a the proposed rule as described above
Conversion of Insured Credit Unions to conversion proposal and established but does include some changes in
Mutual Savings Banks procedures for members to share their response to comments. For purposes of
views with directors before they adopt this preamble, the comments are
AGENCY: National Credit Union the proposal. divided into three categories: general
Administration. • Clarified that credit union directors comments on NCUA’s rulemaking
ACTION: Final rule. may vote in favor of a conversion authority, comments addressed to
proposal only if they have determined particular sections of the rule, and other
SUMMARY: The National Credit Union the conversion is in the best interests of comments. The preamble addresses
Administration (NCUA) is issuing final the members and required the board of each of these categories in turn.
revisions to its rules regarding the directors to submit a certification to
conversion of insured credit unions to NCUA of its support for the conversion B. Legal Authority for the Rulemaking
mutual savings banks or mutual savings proposal and plan. The FCUA grants the NCUA Board
associations. The final rule improves the • Simplified the boxed disclosures broad, general rulemaking authority
information available to members and that a credit union must provide to its over federal and federally-insured state-
the board of directors as they consider members. chartered credit unions:
a possible conversion. The final rule • Changed the current requirement Powers of the Board and
includes revised disclosures, revised for delivery of the boxed disclosures Administration personnel.—(a) The
voting procedures, procedures to (i.e., with all written communications to Board may prescribe rules and
facilitate communications among members) to require that the disclosures regulations for the administration of [the
members, and procedures for members need only be delivered with the 90-, 60- FCUA] (including, but not by way of
to provide their comments to directors and 30-day member notices. limitation, the merger, consolidation,
before the credit union board votes on • Provided for the form of the and dissolution of corporations
a conversion plan. member ballot and that the ballot must organized under this chapter) * * *.
DATES: This rule is effective January 22, be sent only with the 30-day notice. 12 U.S.C. 1766(a). The FCUA contains
2007. • Required the board of directors to numerous provisions governing credit
FOR FURTHER INFORMATION CONTACT:
set a voting record date not less than union activities, including
Moisette Green and Paul Peterson, Staff one hundred twenty days before the reorganizations and charter conversions.
Attorneys, Division of Operations, board notifies the members it is See, e.g., 12 U.S.C. 1771 and 1785.
Office of General Counsel, at the considering adopting a conversion Section 1785, in particular, addresses
National Credit Union Administration, proposal. the conversion of credit unions to
• Required that, after the board has MSBs, including specific voting and
1775 Duke Street, Alexandria, Virginia
approved an MSB conversion proposal notice requirements and limitations on
22314–3428 or telephone: (703) 518–
and upon the request of a member, a benefits for directors and management.
6540.
credit union must disseminate Section 1785 also charges NCUA with
SUPPLEMENTARY INFORMATION: information from that requestor to other oversight of the membership vote:
A. Background members at the requestor’s expense. Oversight of member vote. The member
• Stated that members of federal vote concerning charter conversion under
Under the Federal Credit Union Act credit unions (FCUs) may request and this paragraph shall be administered by the
(FCUA), a federally insured credit union be granted access to the books and Administration, and shall be verified by the
(credit union) may convert to a mutual records of a converting credit union Federal or State regulatory agency that would
savings bank or savings association in under the same terms and conditions have jurisdiction over the institution after the
mutual form (collectively referred to as that a state-chartered for-profit conversion. If either the Administration or
MSBs). 12 U.S.C. 1785(b)(2). NCUA has corporation in the state in which the that regulatory agency disapproves of the
regulations on the conversion process. FCU is located must grant access to its methods by which the member vote was
12 CFR part 708a. In June 2006, the taken or procedures applicable to the
shareholders. member vote, the member vote shall be taken
NCUA Board published proposed • Required the Regional Director to again, as directed by the Administration or
amendments to part 708a in the Federal make a determination to approve or the agency.
Register for a 60-day public comment disapprove the methods and procedures
period. 71 FR 36946 (June 28, 2006). for the membership vote within thirty 12 U.S.C. 1785(b)(2)(G)(ii). The FCUA
As stated in the preamble to the calendar days of the receipt of the also gives the NCUA Board specific
proposal, the conversion from a credit certification of the member vote and rulemaking authority over credit union
union charter to a bank charter is a permitted a credit union dissatisfied conversions to MSBs as follows:
fundamental shift. The decision to with the determination to appeal to the (G) Consistent rules. (i) In general. Not later
convert belongs to the members. To NCUA Board. than 6 months after the date of enactment of
make this decision, members must be • Required a credit union to complete the Credit Union Membership Access Act the
fully informed as to the reasons for the a conversion within one year of NCUA’s Administration shall promulgate final rules
conversion and have time to consider applicable to charter conversions described
approval of the methods and procedures
in this paragraph that are consistent with
the advantages and disadvantages of of the vote. rules promulgated by other financial
conversion. They should also have an • Modified the voting guidelines to regulators, including the Office of Thrift
opportunity to communicate their views include information on the use of voting Supervision and the Office of the
to the credit union’s directors and to incentives such as raffles. Comptroller of the Currency. The rules
communicate with other members about NCUA received 52 comment letters on required by this clause shall provide that
the proposed conversion. NCUA the proposal from a variety of sources, charter conversion by an insured credit
Federal Register / Vol. 71, No. 246 / Friday, December 22, 2006 / Rules and Regulations 77151
union shall be subject to regulation that is no * * * more restrictive.’’ The Board regulators, including, in particular, to
more or less restrictive than that applicable concluded that ‘‘no * * * less the following conversion rules of the
to charter conversions by other financial restrictive than [those] applicable to OCC and the OTS:
institutions. charter conversions by other financial • OCC rules governing the conversion
12 U.S.C. 1785(b)(2)(G)(ii). The key institutions’’ meant: of state banks to national banks.
rulemaking provisions, added by the [T]hat when NCUA is aware of a particular • OTS rules governing the conversion
Credit Union Membership Access Act federal or state law that confines the choices of state mutual savings banks to federal
(CUMAA) in 1998, are twofold. First, or action of a converting institution, NCUA mutual savings banks; and
NCUA’s rules must be ‘‘consistent with should consider if that restriction makes • OTS rules governing the conversion
rules promulgated by other financial sense for a converting credit union in light of mutual savings banks to stock banks,
regulators, including the Office of Thrift of the underlying principles that inform including state to federal charter
Supervision and the Office of the NCUA’s and other regulator’s rulemakings
conversions.
Comptroller of the Currency;’’ and, * * *.
NCUA believes these particular rules
second, NCUA’s rules must be ‘‘no more Id. at 36948. The Board then are appropriate for comparison to
or less restrictive than [those rules] concluded the requirement that NCUA’s NCUA’s rule because they have
applicable to charter conversions by rules be ‘‘no more * * * restrictive than procedural protections that ensure
other financial institutions.’’ Id. [those] applicable to charter conversions informed decision making and that
In the preamble to the proposed rule, by other financial institutions’’ meant protect the interests of the relevant
the NCUA Board addressed NCUA’s that: stakeholders.1 These rules place various
statutory rulemaking authority. 71 FR [NCUA’s] rule, taken in its entirety, should requirements on a converting financial
36946, 36947–49 (June 28, 2006). The not confine a converting credit union’s institution, including:
Board noted that, due to differences in actions or choices more significantly than the • Director voting;
the structure of different financial rules of other financial regulators, taken in • Director certifications;
institutions and differences in the their entirety, confine the actions or choices • Stakeholder voting and procedures;
statutes that enable charter conversions, of the converting institutions they regulate.
• Disclosures;
it would not be possible for NCUA to Id. at 36949.
adopt conversion rules that were • Public notice, comment, and
As discussed above, the FCUA meetings;
identical to those of all other financial language ‘‘no * * * less restrictive than
regulators and, therefore, that Congress • Obtaining legal opinions;
the rules governing charter conversions • Procedures for communication
could not have intended such a result. by other financial institutions’’ instructs
After analyzing the FCUA enabling among stakeholders using the resources
NCUA to consider particular, of the converting institution, including
legislation at some length, the Board procedural elements in other conversion
reached several conclusions about its proxy solicitations and other
rules and determine if those provisions communication measures; and
statutory authority. The first conclusion, make sense for a converting credit union
interpreting the FCUA’s requirement • Regulatory compliance provisions,
in light of the underlying principles that such as applications for insurance
that NCUA’s rules be ‘‘consistent with inform NCUA’s and other regulator’s
rules promulgated by other financial coverage, Community Reinvestment Act
rulemakings. NCUA has discretion to (CRA) compliance, and Qualified Thrift
regulators’’ was: adopt particular procedural provisions Lender Test (QTL) compliance.
NCUA’s rules applicable to conversion used by other regulators, or not adopt
from credit unions to MSBs should be The following chart summarizes those
them, or establish new procedural
compatible with the rules, if any, that govern elements of each rule, including
provisions depending on whether those
conversions to new banking entities. In other NCUA’s final rule, that confine the
provisions make sense for credit unions
words, a credit union that wishes to convert converting institution’s actions or
and their members. The particular
to a federally-chartered MSB (‘‘FMSB’’) choice:
should not encounter insurmountable
regulatory provisions considered by
contradictions between NCUA’s rules NCUA for this rulemaking, and their 1 The relevant decision makers do vary among
governing conversions to FMSBs and the utility, are discussed in the preamble to these conversion situations. In NCUA’s rulemaking,
existing Office of Thrift Supervision (‘‘OTS’’) the proposed rule. 71 FR 36946, 36949– directors and stakeholders (i.e., the members) make
and Federal Deposit Insurance Corporation 60 (June 28, 2006). substantive decisions about the conversion, and
(‘‘FDIC’’) rules governing the same * * *. The FCUA limits NCUA’s discretion NCUA, the regulator, administers the member vote
and approves the methods and procedures of the
Likewise, if a credit union wishes to convert to adopt particular regulatory provisions
vote. The conversion of state MSBs to federal MSBs
to a state-chartered MSB, NCUA’s rules through its requirement that NCUA’s and the associated OTS rule involve the directors
should be compatible with the state rule also be ‘‘no * * * more restrictive and the regulator as the substantive decision
regulator’s rules, if any, governing the same than the rules governing charter makers. For the conversion of a state bank to a
conversion. conversions by other financial national bank and the conversion of mutual savings
banks to stock banks and the associated OCC and
Id. at 36948. The Board next turned to institutions,’’ meaning that NCUA’s rule OTS rules, the decision makers are the directors,
the FCUA’s ‘‘no more or less restrictive’’ should not, when taken in its entirety, stakeholders, and regulators. Despite the variance in
requirement and, after demonstrating constrain a converting credit union’s the decision makers among these NCUA, OTS, and
that this ‘‘no more or less restrictive’’ action or choice more significantly than OCC conversion situations, in all cases the
phrase could not mean ‘‘identical,’’ the rules of other financial regulators applicable rules and the requirements placed on the
converting institution by the rules ensure the
analyzed the phrase in terms of its taken in their entirety. Accordingly, decision makers make an informed decision.
constituent pieces, that is, the meanings NCUA compared its final rule to the Accordingly, these OTS and OCC rules are
of ‘‘no * * * less restrictive’’ and ‘‘no charter conversion rules of other appropriate precedent for NCUA’s rule.
OTS (state/federal MSB

OCC (state bank to OTS (state MSB to fed-
Regulatory conversion provisions 2 NCUA (CU to MSB) to
national bank) eral MSB)
federal stock bank)
Requires director approval of conver- Yes ................................ Yes ................................ Yes. Two-thirds vote ..... Yes.
sion plan.
Requires director certifications .......... Yes ................................ Yes ................................ Yes ................................ Yes.
Requires legal or other third party No ................................. Yes ................................ Yes ................................ Yes.
opinions.
Requires regulator approval .............. Methods and proce- Yes ................................ Yes ................................ Yes.
dures only.
May require a regulator examination No ................................. Yes ................................ No ................................. No.
May require a regulator meeting ....... No ................................. Yes ................................ Yes ................................ Yes.
Publication of notice of intent to con- Yes ................................ Yes ................................ Yes ................................ Yes.
vert.
Solicitation of comments ................... Yes, member-to-director Yes, public .................... Yes, public .................... Yes, public.
May require a public meeting or No ................................. Yes ................................ Yes ................................ Yes.
hearing.
Requires stakeholder approval .......... Yes ................................ Yes ................................ Yes ................................ Yes.
Sets a minimum level of stakeholder No. Simple majority of Yes. At least 51% of all Yes. Majority of total No.
participation. those who actually voting stock must ap- outstanding votes
vote. prove. must approve.
Requires general disclosures to Yes ................................ Yes ................................ Yes ................................ No.
stakeholders or public.
Requires specific disclosures to Yes ................................ No ................................. Not currently, but may No.
stakeholders. require (see, for ex-
ample, OTS TB 58).
Provides a process for communica- Yes ................................ Yes ................................ Yes (two different meth- Yes.
tion among stakeholders. ods).
Restricts date of record for stake- Yes ................................ No ................................. Yes ................................ N/A.
holder voting purposes.
Provides deadline for completing Yes. 18 months ............. Yes. Six months ............ Yes. 24 months ............. Yes. 24 months.
conversion.
Can add additional requirements on No ................................. Yes ................................ Yes ................................ Yes.
converting institution through poli-
cies incorporated into regulation.
Other significant requirements .......... No ................................. Yes, e.g., business plan, Yes, e.g., detailed con- Yes, e.g., business plan,
subsidiaries, non-conversion plan, business CRA.
forming assets, in- plan.
sider compensation.
After comparing NCUA’s final rule to • The FCUA requires NCUA to look only the rules of the OTS or OCC, or
these OCC and OTS rules, the Board only to the rules of other federal only the rules of federal regulators or
believes NCUA’s final rule, taken in its regulators, not state regulators, for banking regulators, or only the rules
entirety, does not confine a converting precedent; applicable to the loss, but not the gain,
credit union’s actions or choice more • The FCUA does not permit NCUA of a converting institution. Likewise, the
than these OCC and OTS rules taken in to consider the rules of non-bank plain language of the phrases ‘‘other
their entirety. Accordingly, NCUA’s financial regulators (e.g., the Securities financial institutions’’ or ‘‘other
final rule is ‘‘no more or less restrictive and Exchange Commission or the Farm financial regulators’’ does not limit
than the rules governing charter Credit Administration) as precedent; NCUA as suggested by these
conversions by other financial • The FCUA requires NCUA to look commenters. Further, the plain language
institutions.’’ 12 U.S.C. 1785(b)(2)(G)(i). only to the conversion regulations of the statute does not direct NCUA to
Several commenters suggested NCUA governing the loss of a converting consider only the conversion
lacked legal authority for its proposed institution, not the gain of a converting regulations governing the loss of a
revisions to part 708a. Some of these institution; and converting institution. As discussed in
commenters focused on the NCUA’s • The FCUA prohibits NCUA from the preamble of the proposed rule, there
reliance on particular provisions in the referring to the rules surrounding is no legislative history for these FCUA
regulations of other regulators, mutual-to-stock conversions as provisions, and so there is nothing in
including state regulations. These precedent because stock conversions are the legislative history that would
commenters made the following amendments to an existing charter, not support such narrow interpretations.
arguments: charter conversions. See 71 FR 36946, 36947 fn.3 (June 28,
The Board does not find any support 2006).
2 OCC regulations applicable to the OCC for these limitations in the text of the Despite the absence of anything in the
conversions include 12 CFR part 5, § 5.24(d) and FCUA. The phrase ‘‘including the Office FCUA or legislative history that suggests
the incorporated Comptroller’s Licensing Manual.
OTS regulations generally applicable to mutual-to-
of Thrift Supervision and the Office of NCUA should restrict its search for
stock conversions include 12 CFR part 516, the Comptroller of the Currency (OCC)’’ precedent as described above, some
§§ 543.1, 543.8 through 543.14, 544.1 through modifies the phrase ‘‘other financial commenters argue that, because NCUA
544.5, and the incorporated OTS Form AC. OTS regulators’’ and is not a limitation. The is regulating the conversion of an
regulations generally applicable to the conversion
of a state MSB to a federal MSB include 12 CFR
word ‘‘including’’ references the OTS institution that is leaving NCUA’s
parts 516 and 563b and the incorporated §§ 420 and and the OCC by way of example and jurisdiction, it should look only to OTS
430 of the OTS Applications Handbook. does not limit NCUA to considering and OCC rules that govern conversions
where the OTS or OCC is also losing a but may only be paid if the FCU has interests of the converting bank’s
regulated institution. The Board sufficient retained earnings. 12 U.S.C. stockholders. First, the conversion
carefully considered this argument and 1763; NCUA OGC Legal Opinion 96– requires the approval of two-thirds of all
concluded that reliance on these types 0917 (January 22, 1997), located at the outstanding stock. 12 CFR 5.24(e);
of OTS and OCC rules as precedent http://www.ncua.gov. In the event of a 12 U.S.C. 214a. Second, those
would be inappropriate. credit union liquidation, unsecured stockholders who dissent to the
The Board first considered the creditors have priority over members to conversion have the right to an
conversion of a federal MSB to a state the extent of the members’ uninsured appraisal and a cash payment in
MSB. The OTS has rules applicable to shares,12 CFR 709.5(b)(5) and (6), exchange for their ownership interests.
this process, and the OTS would, in unlike bank depositors who take equally 12 CFR 5.24(e); 12 U.S.C. 214c.
most of these cases, be losing regulatory with unsecured creditors to the extent of Together, these two provisions ensure
authority over the converted institution uninsured deposits. See, e.g., 12 CFR that no conversion takes place unless a
to a state regulator. The OTS does not 360.3(a)(6). significant majority of the ownership
impose any significant procedural • As discussed below, credit union interests support conversion and also
requirements on these conversions, directors have a fiduciary duty to act in that minority ownership interests are
which is understandable because there the best interests of credit union protected through the right to cash out
is no shift in ownership interests or members. While MSB directors have a their ownership interests. NCUA,
rights when one MSB converts into fiduciary duty to act in the best interests however, cannot adopt a similar
another MSB. The NCUA Board of the institution, there is no apparent approach to protect the ownership
believes, however, that the conversion duty to act in the best interests of the interests of credit union members. The
from a credit union to an MSB is MSB members, at least for federal FCUA establishes the voting threshold
different because it involves a MSBs.5 The shift in fiduciary duty when for MSB conversions as ‘‘the affirmative
diminution of ownership rights. Some a credit union converts to an MSB, and vote of the majority of the members of
key differences between credit union the associated loss of focus on the the insured credit union who vote on
and MSB membership are: members, diminishes the member’s the proposal.’’ 12 U.S.C. 1785(b)(2)(B).
• FCU members exert control over the ownership rights. This FCUA provision not only does not
affairs of the institution through their The diminution in ownership protect the members in the manner a
voting power, not delegable by proxy. interests when a credit union converts supermajority would, it hypothetically
12 U.S.C. 1760. MSB members not only to an MSB make this conversion would allow the directors of a credit
can delegate their votes by proxy, but fundamentally different than an MSB to union to convert it to an MSB even if
they can give them up forever in the MSB conversion. Credit union members only a handful of members approve.
form of running proxies. OTS staff has need the procedural protections Accordingly, NCUA does not believe the
stated that ‘‘[t]he use of these proxies, afforded by NCUA’s rule, while MSB
OCC process for converting national
coupled with the management’s control members need little or no protection
banks to state banks is appropriate
over meetings of a mutual savings when converting from one form of MSB
precedent for NCUA’s rulemaking. The
institution, attenuates the influence that to another. Accordingly, the NCUA does
better approach is to ensure that,
depositors may have.’’ 3 not believe the particular OTS rules
• FCU members have the right to one- through the various notice, disclosure,
associated with conversions from a
member, one-vote. MSBs, for the most and communication channels in this
federal MSB to a state MSB are
part, give greater voting power to final rule, the directors and members
appropriate precedent for NCUA’s rule.
depositors with larger deposits.4 The Board also considered the OCC will make a careful and informed
• The net worth of a credit union process for converting a national bank to conversion decision. The approach in
belongs to its members, and they may a state bank, where the OCC loses this final rule is similar to the approach
recognize it in a variety of ways, jurisdiction over the converted bank. taken by the OTS and OCC in other
including lower loan rates and higher Two provisions in OCC regulations and charter conversions, such as the OTS
savings rates than banks (See 71 FR federal law work in tandem to provide mutual-to-stock charter conversion
36946, 36953 (June 28, 2006)) and the significant protection to the ownership rules, the OTS state MSB to federal MSB
special dividends paid by many credit conversion rules, and the OCC state
unions. See, e.g. Loan Growth, Excess 5 The Home Owners’ Loan Act does not describe bank to national bank conversion rules
Capital Play Huge Role in Dividend any duty to act in the best interests of a federal discussed above.
MSB’s member-depositors. 12 U.S.C. §§ 1461 et seq. The Board disagrees with commenters
Payouts, Credit Union Times, January 4, OTS regulations refer only to the director’s duty to
2006, at p. 1. act in the best interests of the institution. See 12 who state OTS rules governing mutual-
• Ownership is measured not only in CFR 563.200 (Conflicts of Interest) and 563.201 to-stock conversions are not relevant to
terms of possible rewards, but also in (Corporate Opportunities). The OTS Thrift NCUA’s rulemaking because these are
terms of the assumption of risk—and Activities Handbook makes numerous references to
the fiduciary duties of MSB directors, but none of
not ‘‘charter’’ conversions. These
credit unions and MSBs are different in these state a duty is owed to the members. One state commenters state that, because the OTS
this regard as well. Dividends on FCU case refers to a director’s fiduciary duty to the may technically amend the existing
shares are not a contractual right, as is members of a state-chartered MSB. Appeal of charter when a federal mutual bank
Concerned Corporators of the Portsmouth Savings
interest on a bank certificate of deposit, Bank, 525 A.2d 671 (N.H. 1987). OTS staff, in
converts to a federal stock bank, and not
reviewing the Portsmouth case, stated ‘‘the court’s issue a new charter, it is not a charter
3 D. Smith and J. Underwood, Memorandum:
decision was based primarily upon the fact that the conversion. First, NCUA notes that the
Mutual Savings Associations and Conversion to depositors’’ rights in this transaction were FCUA does not define the term charter
Stock Form, p. 17 (Office of Thrift Supervision, specifically provided for in the savings bank’s
Business Transactions Division, May 1997)(OTS charter, a special charter granted by the state
conversion, and that NCUA has
Conversion Memorandum). legislature in 1823. Since charters of most savings significant discretion to define and
4 Some credit unions converting to MSBs have institutions, including those of federal mutual interpret the FCUA, both in general and
announced that they intend to maintain the one- institutions, do not have the unique provisions of in terms of its specific authority to
member, one-vote method of voting. Even so, NCUA the New Hampshire savings bank’s charter, the
believes that, with the use of running proxies, the Portsmouth decision is of limited precedential
administer the conversion vote as
directors of an MSB could easily change the MSB’s value.’’ OTS Conversion Memorandum, supra note discussed above. In the Board’s view, a
charter to establish account balance voting. 3, at 23. mutual-to-stock conversion is a de facto
charter conversion because the mutual- 708a.2 Authority to Convert duty. This commenter believes the
to-stock conversion results in a The current § 708a.2 recites the directors’ deciding to act in the best
fundamental restructuring of ownership authority of a federally insured credit interests of members is part of deciding
interests and, usually, a wholesale union to convert to a mutual savings whether the conversion is in the best
change in owners. The Board also notes bank or savings association as provided interests of the institution.
that OTS rules on mutual-to-stock in the FCUA. The proposed § 708a.2 One commenter noted the concept of
conversions cover not only federal-to- maintained this same recitation. NCUA fiduciary duty is discussed only in the
federal stock conversions, but also state- received no public comments on this preamble to the proposed rule, and the
to-federal stock conversions. 12 CFR section, and the section is adopted as rule itself should state the credit union
563b.430. In a state-to-federal stock proposed. officials have fiduciary duties and
conversion, OTS will not amend the should define fiduciary duty as ‘‘[a]
state charter, but will issue a new 708a.3 Board of Directors’ Approval legal obligation directors and senior
federal charter. In both form and and Members’ Opportunity to Comment management have in their capacity as
substance, this is a charter conversion. The current § 708a.3 provides the officials of the credit union to place the
Accordingly, NCUA is satisfied that board of directors must approve a interests of the credit union’s
the proposed rule, and this final rule as conversion proposal by a majority vote membership ahead of their own
adopted, are well within the rulemaking and set a date for a member vote. personal financial interests.’’ This
authority provided by Congress to Members must approve the proposal by commenter felt the proposed voting
NCUA. the affirmative vote of those members guidelines should be further expanded
C. Section by Section Analysis who vote on the proposal. to include a discussion of the
The proposed rule retained the same obligations of credit union officials to
708a.1 Definitions requirement for a board vote on the act with due care and prudence, with
The current § 708a.1 contains conversion proposal but clarified that loyalty to the membership, and in good
definitions for the terms credit union, directors may vote in favor of a faith.
mutual savings bank, savings conversion proposal only if they have Another commenter suggested NCUA
association, federal banking agencies, determined that the conversion is in the include guidance to directors on how
and senior management official. The best interests of the members. The this determination is to be made. This
proposal added a definition for ‘‘clear proposal also contained a new commenter gave an example: If a credit
and conspicuous,’’ meaning ‘‘text that is requirement for advance notice to union is seeking to convert in order to
in bold type in a font at least as large members of the board’s intent to increase its member business lending
as that used for headings, but in no consider a conversion proposal. The activity, how has the board assessed
event smaller than 12 point.’’ The board must publish a notice in a local whether members are interested in
proposal also added a definition for area newspaper and on the credit obtaining more loans of this nature?
‘‘regional director’’ to clarify that, for union’s Web site, as well as post a One commenter suggested the rule
natural person credit unions, it means notice in the credit union’s offices, no require a board to obtain an opinion
the NCUA director for the region where later than 30 days before the directors from an unbiased third party to validate
the credit union’s main office is located meeting. Directors must consider the the directors’ determination that a
and, for corporate credit unions, it comments before voting on the conversion was in the members’ best
means the Director, NCUA Office of conversion proposal. The proposal also interests. Another suggested the board
Corporate Credit Unions. required that, if the credit union should obtain an opinion from counsel
One commenter thought the use of maintains a Web site, the credit union that discusses the board’s compliance
bold text at least as large as that used must post any comments received on its with applicable legal requirements. This
for headings but in any event no smaller Web site. commenter thought the opinion should
than 12 point would not necessarily be be made available to members upon
The Fiduciary Duty of the Board of request.
clear and conspicuous. This commenter
Directors (Public Comments) One commenter expressed concern
recommended a definition of ‘‘clear and
conspicuous’’ like NCUA uses for its Proposed § 708a.3(c) required the that, in some states, the officials of a
privacy rules at 12 CFR 716(3)(b). directors adopting a conversion state-chartered credit union may not
Another commenter stated that NCUA proposal to determine that the have a fiduciary duty that runs to the
should define what it means by conversion is in the best interests of the members of the credit union, citing Save
headings. members. A related provision in Columbia CU Committee v. Columbia
Upon consideration of these proposed § 708a.5 required directors to Community Credit Union, 139 P.3d 386
comments, the Board has modified the certify to NCUA that the conversion is (2006).
definition of clear and conspicuous to in the best interests of the members.
The Fiduciary Duty of the Board of
mean ‘‘text in bold type in a font size NCUA received many comments on this
Directors (Discussion)
at least one size larger than any other issue of the fiduciary duty of the board
text used in the document (exclusive of of directors to its members. The FCUA has numerous references
headings), but in no event smaller than One commenter felt the fiduciary duty to the duty to act in the best interests
12 point.’’ The Board believes that this of the board of directors to act in the of the credit union’s members,
definition will be easier for converting best interests of members was self- including:
credit unions to apply, particularly if evident and needed no reference in the • The NCUA Board may act to
there are multiple headings with rule. remove or prohibit any institution-
different font sizes, while ensuring One commenter asked NCUA to affiliated party at a federally-insured
members notice the information. The clarify that its interpretation of fiduciary credit union if that action meets certain
Board notes that if the document duty, that the officers and management requirements, including that the
contains multiple passages that must be must act in the best interests of the ‘‘interests of the insured credit union’s
clear and conspicuous all these passages members, is not a departure from members have been or could be
would be the same font size. traditional interpretations of fiduciary prejudiced.’’ 12 U.S.C. 1787(g)(1)(B).
• Credit unions applying for federal rates at banks and credit unions is the interest of the beneficiaries,
account insurance must agree to relevant to this issue, and converting including using the trust assets for his
maintain such special reserves as the credit unions should be able to explain or her own personal gain or attempting
NCUA Board may require ‘‘for how and why their institution will be to take personal ownership of trust
protecting the interests of the different than the average bank in this assets, would be guilty of a gross breach
members.’’ 12 U.S.C. 1781(b)(6). regard. of fiduciary duty.
• The NCUA Board must review the Third, as discussed previously, a All these factors make it imperative
application of any individual to become conversion to an MSB dilutes the that the board of directors of a
a director or senior manager at a newly ownership interests of the members. converting credit union understand they
chartered or troubled federally-insured Further, if the MSB subsequently must act in the best interests of their
credit union, and disapprove that converts to a stock bank, as about ninety members. A conversion from a credit
application, if acceptance of the percent of converting credit unions union to a bank should only take place
applicant would not be in the best ultimately do, the vast majority of the after the board has completed its due
interests of the depositors (members). 12 former credit union members will likely diligence, including consideration of the
U.S.C. 1790a. not subscribe to the stock offering.6 above factors, and an informed
• When acting as the conservator or This, in turn, either deprives former membership has approved the
liquidating agent of a federally-insured credit union owners of any ownership conversion. Directors should question
credit union, the NCUA Board may take interest, or, in the case of a mutual the assertion of any consultant that
any action it determines is in the best holding company structure, creates a minimizes the ownership rights of
interests of the credit union’s account competing minority stock ownership members or their fiduciary duty to
holders (members). 12 U.S.C. class that can, and does, result in benefit members.
1787(b)(2)(J)(2). to the minority stockholders at the NCUA believes this delineation of a
• A voluntary liquidation of an FCU members’ expense.7 board’s fiduciary responsibility to
must be in the best interests of the Some converting credit unions, and members restates existing law without
members. 12 U.S.C. 1766(b)(2). law firms that advise them, have written change or modification. In the normal
Most of these FCUA provisions on the NCUA suggesting that, because credit course of business when a board acts in
duty to act in the best interests of the union members cannot force a the bests interests of the credit union it
members refer specifically to the NCUA distribution of credit union assets, or is also furthering the interests of the
Board. A closer look at how the cited transfer or pledge their interest in the members. But the duty to act in the best
provisions function, however, connects credit union for value, the members interests of members is primary, and, if
them to the directors. Specifically, the have little or no real ownership interest there is any divergence or conflict
best interests of the members will in the credit union. This view ignores between the interests of the institution
dictate the Board’s actions when the fiduciary duty that credit union and the interests of members, the latter
removing or prohibiting a director, directors owe to their members. The takes precedence.8
approving the appointment of a director, duty owed by credit union directors is The Board has considered the views
operating a conserved credit union in analogous to the duty owed by a trustee of commenters who believe the rule
the role of the board of directors, and to the beneficiaries of a trust. In a should provide additional information
reviewing the propriety of a board of typical family trust, the trustees have on the fiduciary duty standard and how
directors’ decision to pursue a voluntary discretion in the management and compliance with that standard is
liquidation. If the best interests of the distribution of the trust assets. Many measured in the conversion context.
members standard guides the conduct of family trusts also have provisions The Board offers the following
the Board, it must also guide the forbidding the beneficiaries from additional guidance.
conduct of directors. pledging, selling, or otherwise The Board believes that members
NCUA believes it is important for the alienating their interests in the trust. want their depository institution to
directors of every credit union to The inclusion of these provisions in the provide the types of financial services
understand the duty to act in the best trust agreement, however, does not that they need. They want those services
interests of the members. It is result in any loss or diminution of the to be convenient and of high quality.
particularly important, however, that beneficiaries’ ownership interest in the And they want those services to be
the directors recognize this duty and act trust. On the contrary, any trustee who provided at a good price, meaning good
upon it when considering a proposal to might manage trust assets other than in rates and low fees. Accordingly, when
convert a credit union to a bank. directors consider a conversion to the
First, there is a financial incentive, as 6 There is significant anecdotal information
bank they should, as part of their due
discussed in the preamble of the supporting the conclusion that member diligence and in consonance with the
participation in IPOs is extremely low. ‘‘Long-time
proposed rule, for the directors of a members of IGA FCU were mostly left out of the duty to act in the best interests of the
converting institution to put their own money when IGA became the first credit union members, answer the following
personal financial interests ahead of the convert to sell stock * * * [F]ewer than 5% of the questions: What financial services do
interests of their members. 71 FR 22,200 members of the credit union shared in the
profits from the sale of the institution.’’ Credit
the majority of my members want? How
369546, 36953–56 (June 28, 2006). Union Journal, November 13, 2000, p. 1. ‘‘All who do I know this? Can the institution best
Second, there may be a tendency by had their subscriptions filled were depositors-but provide these services to its members as
directors of a converting credit union to only 5% of all depositors subscribed.’’ FDIC a credit union or a bank? If the credit
focus solely on the projected growth of Review, Mutual-to-Stock Conversions of State
union converts to a bank, how will that
the converting institution and acquiring Nonmember Savings Banks, 59 FR 30357, 30359
(June 13, 1994). And, in just the past few months, affect the rates and fees that the
new customers and not to focus, as the ‘‘about 3,500 depositors at ViewPoint Bank, the
best interests of the members standard former Community Credit Union, subscribed to [the 8 One situation in which the best interests of the
suggests, on the financial services IPO] * * * The 3,500 members represent 1.56% of institution and the members may diverge is the
existing members want and how the the [CU’s] 223,000 members * * *.’’ Credit Union possible voluntary liquidation of a healthy credit
Times, October 4, 2006, at www.cutimes.com. union. The FCUA provides that the decision to
conversion will affect the quality, rates, 7 FDIC Review of Mutual-to-Stock Conversions of undertake a voluntary liquidation is determined by
and fees associated with these services. State Nonmember Savings Banks, 59 FR 30357, the best interests of the members and not the best
NCUA’s boxed disclosure on the relative 30363 (June 13, 1994). interests of the institution. 12 U.S.C. 1766(b)(2).
institution charges the members for laws of any other state, the directors of • Not provide meaningful
these services? And if the credit union a state-chartered credit union owe no information to credit union members or
converts to a bank, will it be able to fiduciary duty to their members. a credit union’s board of directors;
offer members (now customers) The Save Columbia court did not • Fuel the spread of misinformation;
something in the way of services or consider how the FCUA might apply to • Generate submissions only from
value that existing banks in the area are the facts in that case. When a state- dissenters and those would lack value
not offering? chartered credit union applies for, and because they would be based on
Mere assertions that a charter change receives, federal account insurance, it is incomplete information about the
is needed to facilitate growth are not, by bound by those portions of the FCUA proposal;
themselves, sufficient to establish that applicable to federally-insured credit • Interject member participation at a
the change is in the best interests of the unions. 12 U.S.C. 1781 et seq. (Title II). very early stage in a manner unlike most
members.9 While post-conversion Four of the five FCUA citations to the other corporate governance situations;
growth may possibly result in profits duty to act in the best interests of • Constitute a member vote before the
and dividends payable to the bank’s members are found in Title II of the board vote;
future stockholders, it does not FCUA and so are applicable to all • Lead to an ill-informed director
necessarily follow that the credit federally-insured credit unions, vote based on limited input;
union’s members also benefit.10 including state charters. Accordingly, • Undermine the authority of the
Accordingly, if the directors rely on the FCUA imposes a duty to act in the board of directors because the members
growth as a reason for conversion, they best interests of the members on the elect their board of directors to study
should establish specifically how directors of all federally-insured state- and make all types of business decisions
accelerated growth will benefit the chartered credit unions regardless of on behalf of the members;
members in terms of providing services whether state law also imposes such a • Be costly and burdensome for the
the members want, higher quality duty. credit union;
• Impair the ability of a board to act
services, and better pricing on those Advance Notice (Comments) quickly and decisively on a conversion
services.
Most commenters supported the proposal; and
This guidance is provided by way of
advance notice requirement, and some • Discourage candid and informed
example and is not intended to be all
commenters suggested additional ways discussion among the directors.
inclusive of a director’s due diligence. Some commenters stated the credit
a credit union should provide the
The nature of the due diligence required union should not have to post views of
advance notice, including the use of
may vary somewhat from credit union nonmembers on its Web site. One
statement stuffers, newsletters, and e-
to credit union depending on each mails or a notice on the quarterly commenter suggested NCUA should
credit union’s particular circumstances. periodic statement preceding the provide additional guidance on posting
NCUA has also carefully considered meeting. Many commenters felt a credit of member comments, including
the decision of the Washington state union should be required to send an whether the comments must be put in
appellate court in Save Columbia CU advance notice directly to members, a particular order; how long the
Committee v. Columbia Community either by mail or e-mail. One commenter comments must remain on the Web site;
Credit Union, 139 P.3d 386 (Wash. Ct. believed that, in addition to the advance whether a credit union has the right to
App. 2006) (Save Columbia) and how it notice, the portion of the directors’ respond to comments and in what
affects the proposed certification meeting on the conversion proposal manner it may respond; whether the
requirement. One of the issues should be open to the membership or, credit union is responsible for any
considered by the court in Save alternatively, the directors should be misinformation in the postings; and
Columbia was if members of the required to hold a town hall style whether there are any privacy concerns
Columbia Community Credit Union, a meeting immediately after they adopted that must be addressed when posting
state-chartered credit union, had the conversion plan. Another member comments.
standing to bring a breach of fiduciary commenter made a similar suggestion
duty claim against the directors. In Advance Notice (Discussion)
but suggested the meeting be a special
reversing the trial court, the appellate meeting of the members. NCUA does not believe the language
court ruled that the Committee (i.e., the One commenter suggested the rule of the FCUA prohibits an advance
members) had no private action to sue require 60 days notice instead of 30 notice requirement. The 90-, 60-, and
for a breach of fiduciary duty and that days; another suggested 120 days. These 30-day notice requirements enumerated
such duty must be enforced by the state commenters believe the additional time in the FCUA are not exclusive, and, in
regulator. While NCUA does not would allow for better communications any event, relate only to the notice of
necessarily agree with the holding or between members and directors without the member vote and so are different
reasoning of the state court, any adversely affecting the conversion than the proposed advance notice of a
inference that the directors owed no process. directors meeting to adopt a conversion
duty to the members of the credit union Several commenters objected to the proposal. The advance notice is also not
was dicta and not necessary to the advance notice requirement. Some did an approval requirement, so that the
holding. NCUA also believes it unlikely not think NCUA had the authority to notice requirement does not contravene
that under Washington state law, or the require advance notice, stating variously the FCUA provision that the conversion
that the FCUA limited the notices to proposal must first be approved by the
9 The only time that growth, by itself, would be
members to three and that a fourth board of directors.
sufficient to justify a charter change would be in the
highly unusual case where the credit union cannot notice violated this limitation or that the As stated in the preamble to the
survive as a credit union and so the continued advance notice was contrary to the proposed rule, NCUA intends the
existence of the institution requires a charter FCUA provision that a proposal to advance notice requirement to facilitate
change. convert ‘‘shall first be approved * * * the flow of information between
10 As discussed above, supra note 7 and
associated discussion, historic data suggests only a

by a majority of the directors.’’ Other members and directors. NCUA does not
tiny fraction of the credit union’s members will objections to the advance notice believe information provided by a
become future stockholders. included statements that it would: member to directors undermines the
directors’ authority, discourages candid the converting credit union in Converting credit unions are, of course,
discussion among the directors, or determining the propriety of particular free to use additional methods of
otherwise impedes their ability to make postings. Accordingly, the final rule communicating, including mailings,
an appropriate and timely decision. does not require the converting credit statement stuffers, newsletters, and e-
Directors should welcome member union to publicize comments received mails.
input and are free to consider any before the adoption of a conversion Accordingly, and except as described
particular member’s point of view and proposal. As discussed below, this final above, NCUA adopts § 708a.3 as
reject it. Directors are also free to obtain rule does include other procedures to proposed.
additional information from their facilitate member-to-member contact in
708a.4 Disclosures and
members, beyond the input received as the period of time following the
Communications to Members
a result of the advance notice, by using directors’ adoption of a conversion
member surveys, questionnaires, or proposal. Section 708a.4 of the current rule,
other collection techniques. NCUA also considered alternatives entitled Voting procedures, provides for
NCUA has, however, reconsidered the suggested by commenters for a member vote on the conversion at a
proposal to require posting of the communicating the advance notice to special meeting or by mail and describes
member’s comments on the credit the members. NCUA believes its the notices that must be provided to
union’s Web site. The intent of the proposal for publication and posting in members 90, 60, and 30 days before the
advance notice is to inform members the credit union’s branch offices and on vote. It prescribes certain information
that a credit union is considering a its Web site minimizes the burden on and disclosures that must be in the
conversion and to facilitate member- the credit union while ensuring that notices. It also requires the vote must be
director contact, not member-member members have a reasonable chance to by secret ballot and conducted by an
contact, in the period of time preceding learn of the proposal and provide input independent entity.
the directors’ decision on the to directors. One commenter suggested The proposal contained several
conversion proposal. As noted by some that the rule be clarified to require the changes to § 708a.4. It modified the
commenters, posting member comments advance notice be posted in the lobby of mandatory boxed disclosures the board
does not directly further the stated a converting credit union. NCUA agrees of directors must give to members once
purposes of the advance notice, and the with this clarification and has made the the board has approved a proposal to
posting does impose some burden on suggested change to the final rule. convert to read:
IMPORTANT REGULATORY DISCLOSURE ABOUT YOUR VOTE

The National Credit Union Administration, the federal government agency that supervises credit unions, requires [insert name of credit union]
to provide the following disclosures:
1. LOSS OF CREDIT UNION MEMBERSHIP. A vote ‘‘FOR’’ the proposed conversion means your credit union will become a mutual savings
bank. A vote ‘‘AGAINST’’ the proposed conversion means your credit union will remain a credit union.
2. RATES ON LOANS AND SAVINGS. If your credit union converts to a bank, you may experience changes in your loan and savings rates.
Available historic data indicates that, for most loan products, credit unions on average charge lower rates than banks. For most savings
products, credit unions on average pay higher rates than banks.
3. POTENTIAL PROFITS BY OFFICERS AND DIRECTORS. Conversion to a mutual savings bank is often the first step in a two-step process
to convert to a stock-issuing bank or holding company structure. In such a scenario, the officers and directors of the institution often profit by
obtaining stock in excess of that available to other members.
The proposal required that these MEMBERSHIP,’’ was unnecessarily your credit union to remain a credit
boxed disclosures be sent only with the negative and should be changed or union.
three written notices and not with all eliminated. The Board disagrees that
Proposed Boxed Disclosure #2 (Rates on
written communications as under the there is anything negative about the
Loans and Savings)
current rule. The proposal also title. In every conversion, the converting
established procedures for members to credit union will emphasize why it Most commenters strongly supported
share their views with other members wants to convert including what it this disclosure. These commenters
during the 90-day notice period perceives are the positive aspects of the thought this disclosure highlighted a
preceding the membership vote. The conversion. Nothing in NCUA’s rule fundamental difference between banks
proposal further stated that the ballot prohibits such statements, as long as and credit unions. Some of these
must be sent only with the 30-day they are accurate and not deceptive. 12 commenters stated credit unions
notice and may not contain any CFR 740.2. generally charge fewer and smaller fees
information other than a statement of than banks and recommended the
A few commenters also suggested that disclosure should also address
the proposition being voted on, a short this proposed box disclosure on the
statement of the board’s differences in fees. One such commenter
effect of a ‘‘FOR’’ vote might be suggested that, if NCUA did not have
recommendation, and voting misinterpreted by a member as
instructions. data on the fees banks and credit unions
indicating that the member’s vote, by charge, it should commission a study.
Proposed Boxed Disclosure #1 (Loss of itself, would determine the outcome of One commenter suggested that, in
Credit Union Membership) the vote. To clarify this, the final rule addition to the discussion of historic
amends this disclosure to read: averages, the boxed disclosure should
Most commenters supported the
disclosure as written. These 1. LOSS OF CREDIT UNION include actual examples of specific rate
commenters thought members need to MEMBERSHIP. A vote ‘‘FOR’’ the disparities. One commenter noted that,
know precisely what a FOR vote and an proposed conversion means you want in addition to the data and studies cited
AGAINST vote mean. your credit union to become a mutual by NCUA in the preamble to the
Some commenters thought the title savings bank. A vote ‘‘AGAINST’’ the proposed rule, a study by University of
line, ‘‘LOSS OF CREDIT UNION proposed conversion means you want North Carolina Economist William
Jackson, entitled The Benefits of Credit comments on the rates at converted bank may seek higher margins through
Unions to North Carolina Consumers of credit unions. NCUA received no higher pricing to benefit the bank’s
Financial Services, also supports this comments responsive to this request. stockholders.
disclosure. This lack of data on converted credit NCUA does not intend for these
Several commenters thought the unions, however, is not critical. Looking disclosures on savings and loan rates to
proposed boxed disclosure was at just the small number of previous keep a converting credit union from
misleading. One thought it implies rates credit union to bank conversions could, providing its views on the rate issue. On
on existing loans and deposits if one or more of the new banks ran the contrary, NCUA wants members and
established by contract could be promotional rates, skew the real effect of directors to think about and discuss this
changed post-conversion. Another the conversion on rates. NCUA believes issue, and for the directors to fully
commenter thought the proposed that averaging rates over a large number explain why their bank, after
language was not representative of the of banks and credit unions is the best conversion, will differ from the average
actual transaction being voted on: ‘‘the way to remove the effects of occasional bank. In this regard, one commenter
conversion to a mutual savings bank.’’ promotional rates. NCUA also has no who objected to the proposed disclosure
A few commenters objected to the reason to believe that the average rates as bad policy gave the following
disclosure because credit unions do not at banks that were formerly credit reasons:
always have more favorable rates than unions will be different than banks that • The studies cited by NCUA do not
banks. One commenter objected to the have always been banks, particularly compare the rates for converted credit
disclosure because it implies a credit with the passage of time following the unions pre-conversion and post-
union’s current pricing is more conversion. conversion, and the growth rates for
attractive than the competition and its Accordingly, the Board does not converted credit unions are much
future pricing will be less attractive than believe this disclosure, as proposed, was higher after conversion than before
the competition. This commenter also misleading in any way, and the final conversion; and
stated that, in a free market economy, rule adopts this disclosure as • The NCUA makes comparisons
the marketplace determines pricing, and proposed.11 The Board would also like using products, such as 60-month
that requiring this disclosure suggests to address a few of the other comments certificates of deposit (CDs), that
otherwise. related to this disclosure. typically do not compose a large
One commenter dismissed the First, the Board disagrees with the proportion of a mutual bank’s balance
method by which NCUA uses the commenters who stated that the sheet.12
economic data, stating that it focused on ‘‘marketplace’’ dictates the prices of This comment raises important issues.
one particular year (2002–2003) and loan and savings products, implying If the converted credit union will charge
particular data points rather than a more that credit unions and banks have no less favorable rates to its members as a
extensive and complete analysis control over prices because prices are result of its growth, the Board questions
including regional and market predetermined solely by external market how the conversion is in the best
differences, market trends, and a full forces. Clearly, depository institutions interests of the members or how
spectrum of products and services. have some control over their prices, members benefit from the growth,
None of the commenters disputed the since competing depositories in a given particularly if the bank converts to stock
accuracy of the data supporting the market area can and do offer different and the vast majority of members do not
disclosure. Contrary to the comments prices for the same product. While become stockholders, as historic data
above, the data did not focus on one external forces play a part in indicates. Also, if the converting credit
particular year or point in time, but determining prices, internal factors such union plans to reduce the availability of
covered three separate years of rates for as how much of the product the its term savings products after
thousands of banks and credit unions. depository wishes to sell and what conversion, it should tell its members
The data were clear that for most loan margin it desires also play a part in and explain why the members do not
and savings products credit union rates setting prices. In particular, the cost of need the product. If the converting
are, on average, significantly better than offering a product, including expenses, credit union plans to offer a 60-month
banks. While this is not true of all figures into the profit margin calculation CD, but at lower rates as is suggested by
products surveyed, what is true is that and the pricing determination. Credit the average historic data, it should tell
for no particular product was the unions may also offer better prices than its members that as well.
average bank rate significantly better banks because lower loan rates and
than the credit union rate. The boxed higher savings rates return value Proposed Boxed Disclosures (Potential
disclosure makes no statement about directly to the credit union’s member- Profits by Officers and Directors)
particular credit union rates, only owners while, at least for stock banks Most commenters supported the
average rates. Also, in this disclosure and mutual holding companies, the proposed disclosure. One suggested an
the generic word ‘‘bank’’ is more ‘‘actual, worst-case’’ example be
appropriate than the phrase ‘‘mutual 11 NCUA compared average rates for banks and
provided. One suggested NCUA replace
savings bank.’’ The disclosure is true of credit unions for 20 savings and loan products over the word ‘‘often’’ in the phrase ‘‘often
all banks, including both mutual and a three-year period. Recently, the General
Accounting Office (GAO) completed a similar the first step in a two-step process to
stock banks—and most converting credit comparison of average bank and credit union rates convert to a stock-issuing bank or
unions convert to mutual banks and for 15 savings and loan products over a five year holding company structure’’ with an
then to stock banks. Accordingly, the period. The NCUA and GAO reached the same actual percentage based on historical
Board has determined the disclosure is conclusion that, while there was virtually no
difference between banks and credit unions in data.
not misleading. mortgage rates, the data ‘‘indicate(s) that credit
NCUA requested data from unions offer more favorable rates on average than 12 NCUA does not know if this comment about
DATATRAC on credit unions that had similarly sized banks for a number of savings the proportion of a bank’s balance sheet devoted to
previously converted to banks, but products and consumer loans.’’ Greater certificates of deposit is accurate. The DATATRAC
Transparency Needed on Who Credit Unions Serve data analyzed by NCUA included thousands of
DATATRAC had only incomplete data and on Senior Executive Compensation banks offering 60-month CDs. For example, the
on them. NCUA also asked, in the Arrangements, U.S. General Accounting Office DATATRAC data for year-end 2005 included 60-
preamble to the proposed rule, for Report GAO–07–29, p. 57. month CD rates offered by 4,824 banks.
The NCUA Board does not believe an when they might acquire ownership its reasons supporting the conversion at
example is appropriate. In addition, the interests that otherwise belong to their some length in the member notice.
use of an actual historical percentage members. NCUA’s past experience is that
would quickly become out of date as a NCUA is not the only financial converting credit unions do not,
result of future conversions. regulator to have recognized the benefits however, want to present to their
Several commenters objected to the that officials gain in a stock conversion members the important information in
proposed boxed disclosure and stated or to raise issues concerning conflicts of the boxed disclosures. Accordingly, the
variously: interest and fiduciary duties. In 1994, disclosures, as written, create the
• The disclosure is speculative the Board of Directors of the Federal balance that would otherwise be
because the stock conversion may not Deposit Insurance Corporation (FDIC) lacking. If the directors of a converting
take place and NCUA should not ordered the publication of a review, credit union believe the information
assume it will; authored by several senior members of about stock plans is unbalanced, they
• The disclosure is misleading and the FDIC staff, of mutual-to-stock are free to include whatever accurate
inflammatory; conversions by state nonmember information they want in the notices
• OTS regulations ensure that banks.15 This FDIC review stated that about the perceived benefits of stock
officials are not enriched at the expense the mutual-to-stock conversion process plans. Credit unions should explain to
of depositors; was ‘‘fundamentally flawed.’’ The members why the conversion and
• NCUA does not have authority to review noted that the mutual-to-stock important aspects of the conversion
require disclosures about transactions conversion process was designed to such as stock plans are in the best
outside of its jurisdiction; recapitalize struggling thrifts, not interests of members.
• The disclosure suggests healthy ones, and that when a healthy
unreasonably that stock option and thrift converted it typically resulted in Proposed Boxed Disclosures (General)
stock benefit plans are unfair and a jump, or ‘‘pop,’’ in the value of the Several commenters objected to
unethical; and stock at the initial public offering (IPO). requiring the boxed disclosures be sent
• The disclosure is not balanced and The review then observed that the vast only with the three formal notices and
should include statements about the majority of member-depositors do not not with all written communications, as
benefits of such stock plans. subscribe to and obtain the benefit of in the current rule. These commenters
As discussed in the preamble to the the IPO because of lack of knowledge, believe these disclosures are very
proposed rule, a credit union that lack of resources, or both. As a result, important and a converting credit union
converts to an MSB converts to a stock the review stated, professional may mislead members by failing to
bank almost ninety percent of the depositors and insiders obtain large include this information with other
time.13 An event that occurs about ownership interests in the value of the written communications.
ninety percent of the time is not IPO and the institution’s stock. The The boxed disclosure language is
speculative. In addition, no commenter FDIC review stated, ‘‘[w]e believe that designed to accompany the notices to
challenged the accuracy of the past for individuals who control the members of the member vote. The
insider benefits as discussed in the conversion transaction to lay any claim, disclosure language does not necessarily
preamble.14 Accordingly, the Board in their capacity as managers and fit well with other communications,
does not believe the proposed box trustees, to a portion of the value being such as communications that precede
disclosure is inaccurate or misleading. transferred creates a conflict of the adoption of a proposal to convert.
Additionally, if a credit union does not interest.’’16 Further, NCUA does not want the
plan to convert to stock, it is free to tell The NCUA Board feels it important to boards of converting credit unions to
its members. Of course, it may change also respond to suggestions that this use the required disclosures as an
its mind after conversion to a mutual, boxed disclosure, or any of the boxed excuse not to communicate with their
and credit union members should be disclosures, lack balance. The FCUA members.
aware that a converting credit union requires membership approval of the Several commenters suggested NCUA
still could convert to stock. conversion, and so the credit union has prohibit a converting credit union from
OTS regulations do not purport to an incentive to advocate for conversion. disputing or refuting the boxed
ensure that officials are not enriched, In every conversion reviewed by NCUA, disclosures. Some of these commenters
and the disclosure does not suggest that the converting credit union has set forth stated the boxed disclosures present
stock plans are unfair or unethical. As facts, not opinion, and should not be
discussed above, credit union directors 15 Review of Mutual-to-Stock Conversions of State subject to interpretation or rebuttal. One
have a fiduciary duty to their members Nonmember Savings Banks, 59 FR 30357, 30362– of these commenters stated NCUA
63 (June 14, 1994). approval of rebuttals of these required
and so should inform their members 16 Id. at 30361. The FDIC review proposed a
disclosures dilutes the effectiveness of
solution that involved issuing stock purchase rights
13 71 FR 36946, 36954 (June 28, 2006). to stakeholders, including depositors. The these critical disclosures. This
14 The preamble to the proposed rule also stakeholder rights would be valued, in the commenter believes attempts to disguise
contains a discussion of what management and aggregate, at the amount of capital the bank needed, or disclaim federally required
officials at former credit unions obtained in stock and if the IPO produced additional capital, those disclosures have traditionally resulted
and other benefits as a result of the stock stakeholders who had not exercised their stock
conversion. Id. at 36954. Since the proposed rule purchase rights would be given the excess capital. in disclosures being held to be defective
was issued for comment, Viewpoint Bank, another Following publication of the review, the FDIC was and legally insufficient. This commenter
former credit union, has converted to stock inside inundated with more than 1000 comments from the analogized such rebuttals to allowing a
a mutual holding company structure. Based on the banking industry. Five months later, the FDIC rebuttal to the Annual Percentage Rate
Viewpoint prospectus and other publicly available dropped its proposal with the statement that ‘‘[a]ny
information, it appears that senior officials at fundamental re-design of the conversion process (APR) disclosure required by the Truth-
Viewpoint made more than $1 million in profits on should involve the appropriate legislative bodies, in-Lending Act and Regulation Z.
the IPO pop. The bank also set aside $13.9 million Congress or State legislatures.’’ 59 FR 61233, 61235 NCUA’s disclosures are not analogous
in free stock for its employees in the Employee (November 30, 1994). These issues of a large IPO to the APR disclosure required by
Stock Ownership Plan, and intends to set aside pop, tiny participation by member-depositors, and
another $7.8 million in free stock for senior officials windfalls to senior officials, remain today. See
Federal Reserve Board’s Regulation Z.
in its restricted stock plan and another $3.1 million supra notes 5 and 10 and the accompanying text on The APR calculation is a standardized
in stock for senior officials in its stock option plan. the recent IPO of Viewpoint Bank. numerical calculation meant to facilitate
comparisons. NCUA wants to encourage Other Required Disclosures (General) this intent because it ensures that all
communication and discussion, not The current rule requires a converting interested parties, including the credit
discourage it. As discussed previously, credit union to disclose other union’s membership, are aware of the
if a converting credit union wants to information about the conversion, and credit union’s intent to go to convert to
make statements about its intent with the proposal retained these disclosures, stock and professional depositors and
regard to post-conversion rates or post- including whether the converting credit others with access to inside information
conversion stock benefits, it is free to do union intends to convert to a stock will not have an advantage over the
so. entity; any conversion-related benefits credit union’s members.
Several commenters felt the to directors and senior management; NCUA is aware that professional
disclosure relating to diminution of and the effect of conversion on products investors can purchase private research
voting rights following conversion to an and services, including the effect, if any, predicting which credit unions are
MSB should be retained as part of the of the Qualified Thrift Lender (QTL) test likely to convert to MSBs and then to
boxed disclosures. NCUA believes this applicable to federal MSBs. stock banks. Professional depositors
disclosure is important, and so must be Several commenters stated that already have an information edge over
made by the converting credit union in disclosure of the intent to convert to a the member-owners of a credit union
the body of the member notice. stock institution would violate the and it is only proper that the board of
Including too much information in the confidentiality requirement in a credit union keep its membership
boxed disclosures, however, reduces the § 563b.120 of the OTS regulations.17 informed of its intentions when those
probability a member will read and Some of these commenters stated that intentions could have a fundamental
comprehend the disclosures. requiring a credit union to state its effect on that ownership interest.
Accordingly, the final rule does not conversion intentions would cause The Board also notes that the OTS has
include this particular disclosure as a these decisions to be fueled by never informed NCUA that it objects to
boxed disclosure. professional investors. the NCUA requirement that a converting
NCUA does not believe its required credit union disclose its intent with
A few commenters suggested other
disclosure violates either the letter or regard to a future stock conversion. In
changes to the disclosures. One
the spirit of the OTS provision at 12 2005, two Texas credit unions converted
commenter that supports the proposed
CFR 563b.120. The disclosure to MSBs. Their notices to members
boxed disclosures believes the key
requirement does not violate the letter about the upcoming vote stated their
language in the disclosures should be intention, after the MSB conversion, to
capitalized, as in the existing rule. The of § 563b.120 because it applies only to
the converting institution while it is a convert to stock institutions. Following
Board believes the disclosures are the member vote, these credit unions
adequate without additional credit union, and the OTS rule applies
only to the converting institution after it requested OTS certify the member vote,
capitalization. One commenter and OTS issued formal certification
suggested an additional disclosure becomes an MSB. Accordingly, the
institution can reference its intent orders. OTS Order No. 2005–24 (July 20,
informing members they may contact 2005) and Order No. 2005–23 (June 29,
the appropriate NCUA regional office if before it converts and then remain silent
about its further intent after it converts. 2005). These orders state that OTS
they feel officials are not acting in the reviewed the text of the member notices.
best interests of members. NCUA Moreover, the NCUA disclosure
provision does not run afoul of the spirit While the orders criticize some of
believes that members who are NCUA’s disclosure requirements,
dissatisfied with the credit union’s of the OTS confidentiality provision. If
an MSB violates 563b.120, the first neither order mentions the disclosure of
actions may use the NCUA complaint intent to convert to stock.
process that exists for all member element of the cure is for the MSB to
complaints and that no specific notice make full public disclosure. 12 CFR The Ballot
of that process is necessary. Some 563b.120(c)(1). The confidentiality
provision is designed to protect against Most commenters strongly support
commenters suggested the boxed the proposal that the ballot be sent only
limited disclosure to the benefit of
disclosure be expanded to include what with the 30-day notice. These
select individuals, such as professional
those commenters perceive as commenters believe members must have
depositors, and to the detriment of the
advantages of the thrift charter over the time to consider both the advantages
MSB membership as a whole. NCUA’s
credit union charter. A converting credit and disadvantages of the conversion and
disclosure provision is consistent with
union is free to explain what it believes to hear what other members have to say
are the advantages of the thrift charter 17 12 about the conversion before deciding
CFR 563b.120. This section reads as follows:
in the notice to the members. ‘‘May I discuss my plans to convert [to a stock how to vote. Several of these
One commenter thought the proposed institution] with others? commenters also suggested NCUA
requirement that the disclosures be (a) You may discuss information about your require that a converting credit union
placed immediately after the cover letter conversion with individuals that you authorize to allow a member to change his or her
prepare documents for your conversion.
was ‘‘unworkable’’ because the credit vote anytime up to the close of the
(b) Except as permitted under paragraph (a) of
union cannot control what its printer this section, you must keep all information about special meeting. These commenters
does or how a member opens an your conversion confidential until your board of cited the balloting rules in Roberts Rules
envelope. This commenter suggested directors adopts your plan of conversion. of Order and also those applicable to
NCUA only require best efforts in that (c) If you violate this section, OTS may require for-profit companies.
you to take remedial action. For example, OTS may
regard. NCUA disagrees. A converting require you to take any or all of the following
Several commenters objected to the
credit union can control the order in actions: requirement that the ballot go only with
which the documents are placed in the (1) Publicly announce that you are considering a the 30-day notice, stating this would
envelope. When members pull out the conversion; shorten the time frame for voting and
materials, they will see the cover letter (2) Set an eligibility record date acceptable to discourage voters from voting. One
OTS;
prepared by the directors, and the other commenter stated NCUA should not
(3) Limit the subscription rights of any person
documents should be placed in the who violates or aids a violation of this section; or presume that voters need more time to
appropriate order behind that cover (4) Take any other action to assure that your vote absent evidence to the contrary.
letter. conversion is fair and equitable.’’ One commenter suggested a credit
union ‘‘mail the ballot separately from [NCUA].’’ 12 U.S.C. 1785(b)(2)(G)(ii). member to pay the full cost of delivery
the 30-day disclosure.’’ The courts have given a very broad in advance. Reimbursement is not
NCUA has carefully considered both meaning to the word ‘‘administer.’’19 required in advance, but the member
sides of this issue. NCUA has heard NCUA’s authority to administer the vote must make an advance on the full
from members of converting credit certainly includes the authority to reimbursement to ensure the
unions that they need time, once the dictate the form of the ballot and its communication is delivered. The credit
membership voting process has been delivery. union and member will subsequently
launched, to communicate with one work out the actual cost of delivery. The
Procedure for Members To
another and to consider their votes. The credit union may not take the remaining
Communicate With Each Other at the
decision made by most converting credit monies due out of the member’s account
Member’s Expense
unions not to allow members to change unless the member concurs.
their votes once cast makes it imperative Most commenters supported the Second, the Board clarifies that the
that the members receive and consider proposal’s provisions for facilitating reimbursable cost only includes direct
all relevant information before they cast member-to-member contact, including costs to the credit union. It does not
an irrevocable ballot. NCUA wishes to the timing, advance payment amounts, include indirect costs or overhead. For
balance the need for an informed vote and NCUA review of disputed materials. example, if the credit union plans to use
with the burden on the converting These commenters generally felt the internal staff to prepare some or all of
institution. For example, it could be proposal protected the rights of the mailing a credit union may not
burdensome to allow voters to change members to make their views known to charge the member for staff salary or
their votes up to the close of the special other members without delaying the benefits. The final rule provides for this.
meeting. It would also be a burden on conversion or unduly burdening the Third, NCUA agrees with those
a converting credit union to require all credit union. commenters suggesting that some
voting be done in person at the special Several comments touched on the advance payment formula adjusting
meeting, and that no ballots be sent, or proposed amount of the required with changes in future prices would be
any votes cast, by mail.18 NCUA advance payment (50 cents per member) better than a fixed amount, at least for
believes that the proposed rule strikes for hardcopy mailings. A few the advance payment on hardcopy
the appropriate balance between voters’ commenters thought 50 cents was too mailings.
rights and the burden on the credit low. One commenter said the cost of a Accordingly, the final rule replaces 50
union. Accordingly, the final rule member mailing was currently closer to cents, the proposed fixed amount, with
retains the requirement that the ballot one dollar per member. This commenter an advance payment calculation using
be sent with the 30-day notice and not also suggested the regulation should 150% of the first class postage rate on
earlier. accommodate changes in costs over time a letter of less than an ounce. The
One commenter noted that the and recommended NCUA specify the current first class postage rate is 39
statement on the ballot about loss of advance payment rate in terms of a cents, and 150% of that, or 58.5 cents,
credit union membership required by multiple of the first class postage rate or, lies between the proposed 50 cents and
proposed § 708a.4(b)(4)(iii) did not track alternatively, permit the converting the one dollar cost that the one credit
the corresponding boxed disclosure credit union to establish some union commenter suggested would be
exactly, because it simply said ‘‘bank’’ reasonable rate. Another commenter its total per-member cost of a hardcopy
and not ‘‘mutual savings bank.’’ The text was also concerned about the ‘‘hard mailing.
coding’’ of these costs, and suggested A few commenters stated that,
of the final § 708a.4(b)(4)(iii) tracks the
credit unions should determine the cost, because of the impact of the bank
final version of the boxed disclosure.
One commenter objected to the within reason. Another commenter conversion decision on members and
proposed rule’s limiting information on suggested NCUA set a maximum their rights, a credit union should bear
the ballot to a statement of the amount a credit union could seek for the entire cost of the member-to-member
cost reimbursement. A few commenters communication. These commenters
conversion proposal under
were concerned about the collectability questioned whether the cost of sending
consideration, the board’s
of the remainder of the reimbursement, the communication might discourage
recommendation, and voting
and one suggested NCUA authorize a some members from attempting to
instructions. This commenter believes
credit union to take additional monies, communicate with other members.
this constitutes censorship. NCUA
not to exceed the maximum amount, Several of these commenters noted that
disagrees. A converting credit union is
from a member’s share accounts. One converting credit unions spend large
free to make its case for conversion in
commenter stated the cost to a member sums of money promoting the
the notice materials and other
should be based on actual amounts, and conversion and individual members
communications to members. The ballot
not specified in the regulations. One opposed to the conversion cannot raise
itself should focus on the mechanics of
commenter asked if the reimbursable this kind of money. Some commenters
voting and not include other
expense included any credit union suggested member comments be
information that may confuse members
overhead. included with the 90-, 60-, and 30-day
and keep them from exercising their
First, NCUA would like to clarify that notices if received by the credit union
voting rights.
The FCUA states that ‘‘[t]he member the proposed rule did not require a before those mailings, citing SEC proxy
vote concerning charter conversion solicitation requirements. One
* * * shall be administered by the
19 As one court stated, ‘‘[t]he word ‘administer’ is commenter suggested the credit union
one susceptible of a very broad interpretation * * * could put all member communications
[t]o ‘manage’ is to control and direct, to
18 The FCUA is silent on ballot delivery. The ‘administer,’ to take charge of * * *’’ Costonis v.
in one separate mailing to be sent before
FCUA language stating that the credit union ‘‘shall Medford Housing Authority, 343 Mass. 108, 114 the 30-day notice. Another commenter
submit notice to each of its members * * * 90 days (Mass. 1961). Another court analyzing the use of the suggested the credit union fund ‘‘a
before the date of the member vote’’ could be word ‘‘administer’’ stated that ‘‘[t]o administer a reasonable number’’ of these
interpreted to mean that the member vote must be decree is to execute it, to enforce its provisions, to
conducted in person on the date of the vote, with resolve conflicts as to its meaning, to construe and
communications. Another commenter
no ballots sent, or votes received, by mail. 12 U.S.C. to interpret its language.’’ United States v. Hennen, suggested that, if a member could obtain
1785(b)(2)(C)(i). 300 F. Supp. 256, 263 (D.C. Nev. 1968). a certain minimum number of member
signatures on a petition supporting a requestor must select one method or the particular communication is proper and
communication, the credit union should other, and, if a combination is were supportive of the proposal.
send it for free. permitted, how the advance payment is A few commenters suggested the
NCUA has carefully considered these to be calculated. NCUA believes the rule required member notices include a
comments. Members who only want is clear. The member may request that statement informing members they may
their comments posted only on the the communication be sent by mail, by provide materials for distribution to
credit union’s Web site may do so for e-mail, or both. In the latter case, the other members. Paragraph 708a.4(f)(9) of
free. Other forms of distribution, member must make both advance the proposed rule requires this, and the
however, may involve significant credit payments. Those members that have final rule retains this provision.
union resources. Members who feel agreed to accept communications by e- One commenter objected to the
strongly about delivery of their message mail will then get the communication proposal and analogized such member-
to other members should be willing to by both mail and e-mail. to-member communications as junk
pay to have it delivered. NCUA did not mail or spam. NCUA disagrees.
A few commenters were concerned
want all the communications to be sent Communications among members are
that, if a credit union could not meet the
together in one mailing because that part of the democratic character of
timeline for review and delivery of a
might raise the issue of which credit unions.
communication, postponement of the One commenter stated that, after a
communications (e.g., for or against the
special meeting unduly burdens the credit union delivers a communication
conversion) would be placed first. The
credit union. Another credit union to its members, it should inform the
petition idea is interesting, but there are
commenter stated that the proposal requesting member that the
only sixty days between the first notice
allowing only seven days to deliver the communication has been delivered.
and the mailing of the ballot, and NCUA
communication was unrealistic in that it NCUA agrees, and the final rule has
is not sure that a petition would work
would take at least 14 days to print, been modified accordingly.
given the time needed to gather and
stuff, and mail the 90,000 pieces of mail One commenter suggested a group of
validate signatures. In addition, the idea
required to reach that credit union’s members might get together to request
of having the credit union fund a
members. delivery of a single communication and
reasonable number of communications,
but not all communications, raises The proposed paragraph 708a.4(f)(1) the rule should specifically permit that.
issues such as the definition of provided that: NCUA agrees, and has added a new
‘‘reasonable’’ and who will select those A converting credit union must mail or e- subparagraph (f)(10) to address that
communications that will be sent for mail a requesting member’s proper situation. The converting credit union
free and which must be paid for. conversion-related materials to other will refer to the group in the manner
One commenter objected to the members eligible to vote within seven days requested by the group, for example,
proposed communication procedures of receiving such a request if .* * * with a single group name or by listing
because of the resources a credit union each member’s name individually.
The Board has considered this and One commenter objected to NCUA
would have to devote to determining
agrees a seven-day delivery standard resolving disputes over the propriety of
which members have agreed to receive
may be overly burdensome. The final the communication, stating this would
e-mail communications and which
rule deletes the words ‘‘within seven constitute NCUA censorship of the
communications were not proper. This
days of receiving such a request’’ from conversion debate. The commenter
commenter felt the proposed provisions
paragraph (f)(1). The final rule retains claims OTS resolves disputes over the
providing for the posting of comments
the requirement, however, that the communications of MSB members only
in the credit union’s branches and on its
credit union must deliver the member when requested. NCUA will perform a
Web sites were sufficient
communication on or before the date similar role to OTS. NCUA will only
communication methods. NCUA
members receive the 30-day notice and become involved when requested. If
disagrees because such postings are not
guaranteed to reach every member. If ballot. There are at least 60 days there is a dispute, the parties will
the member wants a communication between the date the 90-day notice is request NCUA to resolve it, which is the
delivered directly to other members and mailed and the date the members same role OTS plays in MSB
is willing to pay for it, the credit union receive the 30-day notice. The rule communications.
should do it. provides that members have 35 days NCUA solicited comment on possible
Credit unions should follow their from the date of the 90-day notice to alternative methods of communication,
customary mailing practices for submit any communication requests to including, for example, having the
member-to-member communications. a converting credit union. That leaves at member prepare the communication for
For example, if a credit union regularly least 25 days (60 minus 35) for a credit mailing, including sealing the envelopes
delivers information or statements with union to process and deliver a and applying postage, with the credit
respect to two or more members sharing communication. In the event of a union itself being responsible only for
the same address by delivering a single disputed communication, NCUA has putting mailing labels on the envelopes
mailing to those members, referred to as seven of those 25 days to review the and mailing them. NCUA received a few
‘‘householding,’’ then the credit union communication, but that still leaves 18 comments on this proposal. Some
should follow this same practice for days for a credit union to process and commenters thought this would put too
member-to-member communications. deliver the communication. The Board much burden on a member. A few
The householding method of delivery recognizes this timeline may be commenters supported the proposal but
will reduce the amount of duplicative demanding, but it is certainly only if NCUA reviewed the
information that members receive and achievable. A large converting credit communication before mailing for
union should anticipate it may have to
also lower printing and mailing costs for proper content. Another commenter
the credit union and, ultimately, the deliver several member communications thought this approach would reduce the
requestor. on short notice and plan accordingly in burden on the credit union and the
One commenter stated that, as advance of sending the 90-day notice. credit union should have the option of
between e-mailing and regular mail, the A few commenters addressed the requiring the sender to prepare the
regulation should clarify whether the proposed standard for determining if a mailing. After fully considering these
options and comments, NCUA credit union directors understand their conversions, and found no use of the
concludes that the form of fiduciary obligations. Several words ‘‘willful and knowing.’’
communication as proposed is best, and commenters noted that, with the Accordingly, the final rule retains the
not the alternatives. financial incentives to convert, the certification requirement as proposed.
One commenter stated NCUA should certification helps directors to focus on Materials Subject to NCUA Review
regulate the content of communications their fiduciary obligation.
made by those opposed to the Several commenters objected to the Proposed § 708a.5(b) retained a credit
conversion in the same manner it certification requirement. Some of these union’s right to request NCUA make a
regulates the content of communications commenters believe it exceeds NCUA’s preliminary determination regarding the
made by the credit union itself. In fact, statutory authority to impose such a intended methods and procedures
the rule provides for NCUA review of requirement. Some of them felt the applicable to the membership vote. The
comments made by the credit union and requirement will have the effect of proposal expands that right to allow a
comments made through the credit deterring credit union board members credit union also to request review of all
union, regardless of whether those from voting in favor of a plan of of its proposed notices, including the
comments are for conversion or against conversion by increasing the potential public notice it intends to publish
conversion. for litigation against directors. One of before the board of directors votes on a
Accordingly, and except as discussed these commenters believed the vast conversion proposal. Under the
above, the final rule retains § 708a.4 as majority of written comments received proposal, the NCUA Regional Director
proposed. as part of the advance notice will make a determination on the
requirement would oppose the request within 30 calendar days unless
708a.5 Notice to NCUA
conversion process and that this, more time is required to review the
The current § 708a.5 requires that submission or obtain additional
combined with the certification
converting credit unions notify NCUA information.
requirement, would discourage board
of the intent to convert within 90 days Virtually all the comments on the
members from doing what they believe
of the member vote. The credit union proposed expansion of reviewable
to be in the best interests of the credit
must provide NCUA with copies of the materials supported the expansion.
union, its members, and the
notice and material it has or will send Accordingly, the final rule retains this
communities it serves. One of these
to the members. A state-chartered credit provision as proposed.
commenters asked why only a
union must provide NCUA with certain
conversion vote merits this certification Consultation With State Supervisory
information about the laws and
when ‘‘other, equally fundamental Authorities (SSA)
regulations it intends to follow with
changes do not,’’ without identifying
regard to the conversion. The current One commenter requested that, for
what changes are equally fundamental.
§ 708a.5 also permits a credit union, if converting state-chartered credit unions,
One commenter stated that NCUA had
it chooses, to provide notice to NCUA NCUA specifically add a provision to
not offered any evidence that in the past
more than 90 days before the member the rule stating it will coordinate with
a board has skirted its fiduciary
vote, and to request a preliminary the state supervisory authority on the
responsibility on this topic. One of these
determination as to the proposed conversion and conversion process. The
commenters suggests NCUA adopt
methods and procedures of the Board has added a provision that
certification requirements identical to
conversion. requires the Regional Director, upon
the OTS certification requirements. One
notification from a state-chartered credit
Requirement for Board Certification commenter objected to the certification
union that it has adopted a plan of
The proposed rule provided for but suggested that, if adopted, the
conversion, to contact and consult with
directors to submit to NCUA a reference to 18 U.S.C. 1001 should be
the credit union’s SSA.
certification of their support for the expanded to indicate that the title 18 Accordingly, and except as described
conversion proposal and plan. Each provision only applies to willful and as above, this final rule adopts § 708a.5
director who votes in favor of the knowing false certifications. as proposed.
conversion proposal would have to sign The Board has carefully considered
the certification. these comments. Given the financial 708a.6 Membership Approval of a
The certification must include a incentives to credit union officials in Proposal To Convert
statement that each director signing the connection with conversion and the The current § 708a.6 provides that the
certification supports the proposed need to link the board’s conversion due board of the converting credit union
conversion and believes that the diligence to the interests of the must certify the results of the member
proposed conversion is in the best members, the Board believes the vote to NCUA within ten days of the
interests of the members of the credit certification requirement is both member vote. The board must also
union. It must include a description of appropriate and necessary. This certify that the materials actually
all materials submitted to the Regional imposition of this certification provided to the members were the same
Director with the certification and a requirement is within NCUA’s as those previously submitted to NCUA
statement that these materials are true, authority, as discussed in the previous or provide an explanation for any
correct, current, and complete as of the section on NCUA’s rulemaking differences.
date of submission. Finally, it must authority. As noted previously, the proposed
include an acknowledgement that The Board has also considered the § 708a.6 included the requirements
federal law prohibits any suggestion that the reference to 18 found in the current § 708a.4 that
misrepresentations or omissions of U.S.C. 1001 be expanded to indicate members must approve the proposal by
material facts in connection with the that the provision only applies to willful affirmative vote of the majority of
conversion. 18 U.S.C. 1001. and knowing false certifications. The members who vote and the vote must be
Most commenters strongly supported Board has examined similar citations to by secret ballot conducted by an
the proposed director certification 18 U.S.C. 1001 used in director independent entity.
requirement as written. These certifications submitted to OTS in Proposed § 708a.6(b) required the
commenters think it is important that connection with other charter board of directors to set a date
determining member eligibility to vote. 708a.7 Certification of Vote on conversion must verify the vote and
The proposal required the voting date of Conversion Proposal may direct that a new vote be taken.
record be at least one hundred twenty Proposed § 708a.7 retained the NCUA received no comments on this
days before the board of directors requirement, currently located in section, and the final rule retains the
publishes the § 708a.3 notice of intent to § 708a.6, that the board of directors language as proposed.
consider conversion. certify the results of the membership 708a.10 Completion of Conversion
Most commenters agree with the 120- vote to NCUA. No comments were This section retains the provisions in
day voting eligibility requirement. No received on this section, and the final the current § 708a.9 stating that, once
commenters opposed the requirement, rule retains § 708a.7 as proposed. the credit union has received the
although one thought that 30 to 60 days 708a.8 NCUA Oversight of Methods approvals required in the current
was more appropriate, so as to and Procedures of Membership Vote §§ 708a.7 and § 708a.8, it may complete
disenfranchise as few legitimate the conversion. NCUA will then cancel
members as possible. Another The current § 708a.7 provides that the
its account insurance and, if it is a
commenter thought the eligibility date Regional Director will issue a
federal credit union, its charter.
should be as close to the advance notice determination to approve or disapprove The proposal amends the current rule
date as possible. a credit union’s methods and to require a credit union to complete the
procedures for the membership vote conversion transaction within one year
NCUA agrees with the last within 10 calendar days of the receipt
commenter. The final rule modifies the of the date of receipt of its approval
of the credit union’s certification of the from NCUA under proposed § 708a.8.
voting eligibility requirement to no later member vote.
than one day before publication of the Many commenters agreed with this
The proposal lengthened this time one-year completion window. One
advance notice. This will still minimize period to 30 calendar days and relocated commenter suggested that NCUA grant
the impact of professional depositors this provision from § 708a.7 to § 708a.8. the Regional Director authority to
while disenfranchising as few legitimate Based on past NCUA experience, 10 extend this window, upon request of the
members as possible. days does not provide adequate time for converting institution, for an additional
NCUA also solicited comment on the Regional Director to review all of the six months. A few commenters objected
whether it should permit electronic written materials provided to members, to this provision. One of them thought
voting. Only a few comments addressed particularly if the credit union amended two years was more reasonable.
this issue. One supporter stated the them in the process, and verify all of the The final rule permits the Regional
opportunity to vote electronically must information necessary to make the Director, upon timely request and for
be consistent with the timetable required determination. good cause, to extend the one-year
prescribed in the proposed regulations Section 708a.8(d) of the proposal also completion period for an additional six
and that integrity of the process must be contained a new provision permitting a months. This provides additional
verified and maintained. Dissenters credit union dissatisfied with a Regional flexibility to converting credit unions,
were generally concerned about the Director’s determination to appeal to the while still ensuring that the process
possibility of fraud. Given the general NCUA Board. Any appeal must be filed moves along, that the membership vote
lack of response to this suggestion, the by the credit union within 30 calendar will not become stale, and, as discussed
final rule does not authorize electronic days after receipt of the Regional in the preamble to the proposed rule,
Director’s determination. that NCUA can plan for efficient use of
voting.
Most commenters supported the its examination resources.
Several commenters recommended proposed changes, including allowing Except as discussed above, the final
the rule be amended to prohibit the the Regional Director 30 days to approve rule retains § 708a.10 as proposed.
independent teller from providing or disapprove of the methods and
interim updates to the credit union on procedures of the vote and the proposed 708a.11 Limit on Compensation of
the member vote. These commenters appellate process. Officials
believe the credit union may abuse this One commenter objected to the Proposed § 708a.11 retains the limit
information or that the information proposed appeal process as illegal. This on compensation for officials currently
creates an unfair advantage because the commenter characterized the appeal as found in § 708a.10. NCUA received no
credit union management knows the ‘‘mandatory,’’ and stated a mandatory comments on this section, and the final
vote tally while members opposed to the appeal was impermissible under the rule retains § 708a.11 as proposed.
conversion do not. In the alternative, Administrative Procedures Act (APA), 5
some of these commenters suggest that, U.S.C. 702 and 704; and Darby v. 708a.12 Voting incentives (Proposed:
Cisneros, 509 U.S. 137 (1993). The Member Access to Books and Records)
if the teller is permitted to make interim
voting reports available to credit union Board intends the appeal to be The proposed rule included a new
officials, then those reports should also permissive, not mandatory. Both the provision on member access to the
be made available to all interested proposed and final rules state that ‘‘[a] books and records of the converting
parties. converting credit union may appeal the credit union. The proposal stated that
Regional Director’s determination members may request access to the
The interim reporting of voting results
* * *’’ (emphasis added). Accordingly, books and records of a converting credit
is not addressed in the proposed rule
there is no APA issue. union for purposes such as facilitating
and so is beyond the scope of this contact with other members about the
rulemaking. The Board notes that, by 708a.9 Other Regulatory Oversight of conversion or obtaining copies of
requiring the ballot to be sent with the Methods and Procedures of Membership
documents related to the due diligence

30-day notice, the final rule mitigates Vote performed by the credit union’s board of
any advantage that may be gained Proposed § 708a.9 retains the directors. The proposal also stated that
through interim reporting. requirement, currently located in FCUs will grant access under the same
Accordingly, the final § 708a.6 is § 708a.8, that the entity that will terms and conditions that a state-
adopted as proposed. regulate the credit union following chartered for-profit corporation in the
state in which the FCU is located must The proposal moved the voting Members should take the time that
grant access to its shareholders. guidelines to § 708a.13. It retained the they need to consider their vote, and so
Some commenters suggested that, in existing guidance and added additional incentives should not encourage rapid
lieu of relying on the state law where guidance on the use of voting voting. Incentives should be available
the FCU is located, NCUA establish a incentives. equally to all who vote, whether by mail
particular standard for access to member Many commenters supported these or in person at the special meeting. The
books and records. These commenters proposed changes, although many also final guidelines address this.
noted that state law on records access thought the rule should be amended to A few commenters believe the
varies widely from state to state. They specifically prohibit the use of raffles or statement in the proposed guidelines
also noted that, because of the way state other voting incentives. Some of these that ‘‘incentive(s) should not be
corporation statutes are written, it is commenters desire a blanket unreasonable in size’’ is ambiguous and
possible that a state court may decline prohibition, while others want to requested clarification.
to apply state corporate law to an FCU. prohibit only those incentives An incentive could be unreasonably
Some commenters expressed concern constructed to affect the outcome of a large in two different ways. First, the
about access to certain records, conversion vote or designed to cost of the incentive could be
including member names and other encourage rapid voting (e.g., raffles that unreasonable in relation to the credit
sensitive personal information and are only open to the first 500 voters). union’s net worth. In other words, the
safety and soundness information. One Some of the commenters supporting a cost of the incentive should have a
commenter suggested NCUA specify the blanket prohibition feel that voting negligible impact on the credit union’s
kinds of documents members could incentives increase the participation of net worth ratio. Second, the incentive
review, such as the conversion proposal, ‘‘casual’’ or ‘‘indifferent’’ members, could be unreasonable if it is so large
the board minutes addressing while they do not increase the that it distracts the member from the
conversion, and related documents. One participation of those who ‘‘properly purpose of the vote. The Board has
commenter stated NCUA should require regard conversion as a matter of the added additional language to the
disclosure of all communications highest importance.’’ One commenter guidelines to reflect this guidance.
between the credit union and ‘‘outside stated these incentives are intended to Except as discussed above, the final
promoters of the conversion.’’ One encourage members to vote quickly, § 708a.13 is adopted as proposed. Also,
commenter that supported the provision before fully discussing the issue with as discussed above, the final § 708a.12
stated NCUA needed to provide a other members. Some of these is retitled and restructured.
definition of where an FCU that does commenters distinguish the use of
D. Other Comments and Issues
business in more than one state is raffles in other contexts, stating that,
located. One commenter believed access while raffles may be permissible in NCUA received other comments not
to FCU books and records should be other contexts, the importance of the related to any particular section of the
governed by the same law that applies charter conversion decision should keep rule. Some of these comments were
to records access for members of state- out any mechanism that could skew the beyond the scope of this rulemaking,
chartered mutual savings banks or fairness of the vote. One commenter also including:
members of state-chartered nonprofit suggested that, in addition to a • A few commenters asked that
organizations. One commenter thought discussion of voting incentives in the NCUA review its position that it
it should be made clear that access to guidelines attached to the rule, NCUA generally does not become involved in
books and records does not give should specifically prohibit any bylaws disputes. These commenters
members permission to disrupt the incentives offered to affect the outcome believe NCUA should actively enforce
normal course of business. of the vote rather than to encourage bylaw provisions, particularly as they
The Board has decided not to adopt participation in the voting process. One relate to the conversion process. Some
a regulatory provision on member commenter thought a credit union of these commenters stated NCUA often
access to books and records at this time. should be allowed to conduct raffles as focuses on bylaw issues as part of its
FCUs should continue to follow existing it desired without NCUA oversight. examination process. One of these
legal opinions on member access to The Board believes voting incentives commenters stated the bylaws should be
books and records, including NCUA are not necessarily bad. Still, when a regulation.
OGC Legal Opinion 06–0127B (February incentives are employed, they must be • One commenter stated NCUA
6, 2006), located on NCUA’s Web site at used in a way that does not skew the should create a private right of action
http://www.ncua.gov. results of the vote or encourage for members against directors who
Accordingly, the final rule does not members to vote before they have time violate their fiduciary duties.
adopt § 708a.12 as proposed. Instead, to consider the ramifications of the • Some commenters urged NCUA to
the final § 708a.12 addresses voting conversion. After careful consideration, require converting credit unions to
incentives. The text of the final the Board has determined the final rule release their due diligence to the
§ 708a.12 is discussed below. should include a disclosure requirement members before they vote. Some of the
in connection with voting incentives. commenters thought converting credit
708a.13 Voting Guidelines unions should address how conversion
Accordingly, the final § 708a.12 requires
Section 708a.11 of the current that, if a converting credit union offers to a mutual is more beneficial than
conversion rule contains some an incentive to encourage members to converting directly to a stock based
guidelines to assist converting credit participate in the vote, including a prize organization and giving member a pro
unions in conducting their member raffle, every reference to such incentive rata share of stock based on their
vote. The current guidelines discuss the made by the credit union in a written investment in the credit union.
interplay between state and federal law communication to its members must • A few commenters suggested NCUA
affecting the vote, the determination of also state that members are eligible for promulgate a rule requiring a converting
who is eligible to vote, and the time and the incentive regardless of whether they credit union distribute its capital and
place of the special meeting at which vote for or against the proposed surplus in a pro rata distribution to
the members will cast their ballots. conversion. credit union members before converting.
As these comments are beyond the institutions into federal mutual holding not redo that notice nor comply with the
scope of this rulemaking, NCUA companies, which in turn transfer virtually member-to-member communication
declines to address them in this final all their assets and liabilities to new, stock procedures in the final rule. The Board
savings institutions, part of whose stock is
rule. acquired by subscribers in the conversion,
anticipates that a credit union in the
A few commenters suggested NCUA with the majority retained by the mutual process of converting when this rule
permit credit unions to convert directly parent. This structure has the benefit of becomes effective will consult with its
to stock banks. A few commenters permitting converting institutions to raise Regional Director for further guidance.
suggested that, in addition to a only the amount of new capital they actually
conversion rule, NCUA also promulgate need. It has, however, in our view, potential E. Regulatory Procedures
a rule on credit union mergers into for even a higher level of insider abuse than Regulatory Flexibility Act
banks. The FCUA permits credit unions in standard conversions. We note that many
to merge into banks, but a rulemaking newly formed mutual holding companies The Regulatory Flexibility Act
specific to those conversions is also
propose to refuse dividends declared by their requires NCUA to prepare an analysis to
operating subsidiary—with no corresponding describe any significant economic
beyond the scope of this rulemaking. 12 change in their percentage ownership of the
U.S.C. 1785(b)(1). impact a proposed rule may have on a
subsidiary as dividends flowed to its
Several commenters noted the current substantial number of small credit
minority stockholders. It seems to us that this
regulation has no minimum quorum could constitute a breach of fiduciary duty on unions (those under ten million dollars
requirement for the member vote and the part of the trustees—which would be in assets). The Regulatory Flexibility
the decision to convert could be made particularly acute were the trustees Act requires NCUA to prepare an
by only a small fraction of the members. significant stockholders of the subsidiary analysis to describe any significant
These commenters suggested NCUA * * * As our suggested form of standard economic impact a rule may have on a
conversion would eliminate the need to raise substantial number of small credit
should require a quorum of a substantial excessive amounts of capital, we believe use
percentage of the membership. The unions, defined as those under ten
of the mutual holding company structure
FCUA, however, does not permit the should be discouraged in future
million dollars in assets. This proposed
NCUA to establish a quorum conversions.20 rule amends the procedures an insured
requirement for MSB conversions. The credit union must follow to convert to
The Board understands the FDIC, as a an MSB. Based on past experience with
FCUA states that membership approval matter of past and present policy, does
‘‘shall be by affirmative vote of a MSB conversions, NCUA believes that,
not approve MHC conversions of state in any given year, it is unlikely there
majority of the members of the insured
nonmember banks unless the converting will be any conversions by credit unions
credit union who vote on the proposal.’’
institution agrees not to waive with less than ten million dollars in
12 U.S.C. 1785(b)(2)(B).
Several commenters who objected to dividends in favor of minority assets. Accordingly, the Board certifies
the proposed rule felt the proposed rule stockholders. In this regard, the FDIC that this final rule will not have a
undermined the corporate business policy differs from the policy OTS significant economic impact on a
judgment rule. The Board does not agree applies to federal MHC conversions. substantial number of small credit
that anything in the proposed or final Conversions in Process at the Time This unions, and, therefore, a regulatory
rule, which focuses on process and Final Rule Becomes Effective flexibility analysis is not required.
procedures not the substantive decision, A few commenters asked about how Paperwork Reduction Act
undermines the corporate business conversions in process, if any, will be
judgment rule. Part 708a contains information
affected by this rulemaking. The Board collection requirements currently
Many credit unions that convert to
intends that credit unions in the process approved under Office of Management
MSBs subsequently convert to stock
of conversion, to the extent it is and Budget (OMB) Control Number
banks in a mutual holding company
reasonable for them to do so, comply 3133–0153. As required by the
format. One commenter stated that
with the provisions of this final rule. If Paperwork Reduction Act of 1995 (44
NCUA ‘‘vilifies’’ the MHC form
compliance with a particular provision U.S.C. 3507(d)), NCUA has submitted a
unjustly. This commenter states that the
of the rule, however, would impose a copy of this proposed regulation as part
MHC form allows mutual savings
significant burden on the credit union of an information collection package to
associations to raise additional capital,
by requiring it to repeat something it has the OMB for its review and approval of
add branches, and acquire whole
already done, it need not comply with a revision to Control Number 3133–
businesses, all the while ‘‘retaining their
that provision of the rule. For example, 0153. At the time of this rulemaking,
mutual ownership structure.’’ This
if, on the date this rule is published in OMB approval is still pending.
commenter states ‘‘it is hard to find
the Federal Register, the board of
where the NCUA has any experience on Executive Order 13132
directors of a converting credit union
this matter to give their views
has already adopted a conversion Executive Order 13132 encourages
credibility.’’
The Board believes the conversion to proposal, it need not give advance independent regulatory agencies to
an MHC form presents the directors notice nor adopt the conversion consider the impact of their actions on
with conflicts of interest, and the proposal again. It must, however, state and local interests. In adherence to
directors’ waiver of dividends in favor provide public notice as soon as fundamental federalism principles,
of minority stockholders and to the possible that it has adopted a NCUA, an independent regulatory
detriment of the members of the MHC conversion proposal. Similarly, if, on agency as defined in 44 U.S.C. 3502(5),
exemplifies this conflict. Another the date that this rule is published in the voluntarily complies with the executive
banking regulator, the FDIC, agrees. The Federal Register, a credit union has order. The proposed rule would not
already adopted a conversion proposal
FDIC has expressed its concern over this have substantial direct effects on the
waiver practice as follows: and mailed the 90-day notice, it need states, on the connection between the
The Competitive Equality Banking Act of 20 Review of Mutual-to-Stock Conversions of State
national government and the states, or
1987 and the Financial Institutions Reform, Nonmember Savings Banks, 59 FR 30357, 30362–
on the distribution of power and
Recovery, and Enforcement Act of 1989 63 (June 14, 1994). See supra note 11 and responsibilities among the various
authorized conversion of mutual savings accompanying discussion. levels of government. NCUA has
determined that this proposed rule does § 708a.1 Definitions. (ii) The type of institution to which
not constitute a policy that has As used in this part: the credit union’s board is considering
federalism implications for purposes of Clear and conspicuous means text in a proposal to convert;
the executive order. bold type in a font size at least one size (iii) A brief statement of why the
larger than any other text used in the board is considering the conversion and
The Treasury and General Government the major positive and negative effects
document (exclusive of headings), but
Appropriations Act, 1999—Assessment of the proposed conversion;
in no event smaller than 12 point.
of Federal Regulations and Policies on (iv) A statement that directs members
Credit union has the same meaning as
Families to submit any comments on the
insured credit union in section 101 of
The NCUA has determined that this the Federal Credit Union Act. proposal to the credit union’s board of
rule will not affect family well-being Federal banking agencies have the directors by regular mail, electronic
within the meaning of section 654 of the same meaning as in section 3 of the mail, or facsimile;
Treasury and General Government Federal Deposit Insurance Act. (v) The date on which the board plans
Appropriations Act, 1999, Pub. L. 105– Mutual savings bank and savings to vote on the proposal and the date by
277, 112 Stat. 2681 (1998). association have the same meaning as in which members must submit their
section 3 of the Federal Deposit comments for consideration, which may
Small Business Regulatory Enforcement Insurance Act. not be more than 5 days before the
Fairness Act Regional director means the director board vote;
of the NCUA regional office for the (vi) The street address, electronic mail
The Small Business Regulatory address, and facsimile number of the
region where a natural person credit
Enforcement Act of 1996 (Pub. L. 104– credit union where members may
union’s main office is located. For
121) provides generally for submit comments; and
corporate credit unions, regional
congressional review of agency rules. A (vii) A statement that, in the event the
director means the director of NCUA’s
reporting requirement is triggered in board approves the proposal to convert,
Office of Corporate Credit Unions.
instances where NCUA issues a final the proposal will be submitted to the
Senior management official means a
rule as defined by section 551 of the membership of the credit union for a
chief executive officer, an assistant chief
Administrative Procedure Act. 5 U.S.C. vote following a notice period that is no
executive officer, a chief financial
551. The Office of Management and shorter than 90 days.
officer, and any other senior executive
Budget has determined that this rule is (3) The board of directors must
officer as defined by the appropriate
not a major rule for purposes of the approve publication of the notice.
federal banking agencies pursuant to
Small Business Regulatory Enforcement (b) The credit union must collect
section 32(f) of the Federal Deposit
Fairness Act of 1996. member comments and retain copies at
Insurance Act.
List of Subjects in 12 CFR Part 708a the credit union’s main office until the
§ 708a.2 Authority to convert. conversion process is completed.
Charter conversions, Credit unions. A credit union, with the approval of (c) The board of directors may vote on
By the National Credit Union its members, may convert to a mutual the conversion proposal only after
Administration Board on December 14, 2006. savings bank or a savings association reviewing and considering all member
Mary F. Rupp, that is in mutual form without the prior comments. The conversion proposal
Secretary of the Board. approval of the NCUA, subject to may only be approved by an affirmative
applicable law governing mutual vote of a majority of board members
■ For the reasons stated above, the savings banks and savings associations who have determined the conversion is
NCUA Board revises 12 CFR part 708a and the other requirements of this part. in the best interests of the members. If
as follows: approved, the board of directors must
§ 708a.3 Board of directors’ approval and set a date for a vote on the proposal by
PART 708a—CONVERSION OF members’ opportunity to comment.
the members of the credit union.
INSURED CREDIT UNIONS TO (a) A credit union’s board of directors
MUTUAL SAVINGS BANKS must comply with the following notice § 708a.4 Disclosures and communications
requirements before voting on a to members.
Sec. proposal to convert. (a) After the board of directors has
708a.1 Definitions. (1) No later than 30 days before a complied with § 708a.3 and approves a
708a.2 Authority to convert.
board of directors votes on a proposal to conversion proposal, the credit union
708a.3 Board of directors’ approval and
members’ opportunity to comment. convert, it must publish a notice in a must provide written notice of its intent
708a.4 Disclosures and communications to general circulation newspaper, or in to convert to each member who is
members. multiple newspapers if necessary, eligible to vote on the conversion. The
708a.5 Notice to NCUA. serving all areas where the credit union notice to members must be submitted 90
708a.6 Membership approval of a proposal has an office, branch, or service center. calendar days, 60 calendar days, and 30
to convert. It must also post the notice in a clear calendar days before the date of the
708a.7 Certification of vote on conversion and conspicuous fashion in the lobby of membership vote on the conversion. A
proposal. the credit union’s home office and ballot must be included in the same
708a.8 NCUA oversight of methods and
branch offices and on the credit union’s envelope as the 30-day notice and only
procedures of membership vote.
708a.9 Other regulatory oversight of Web site, if it has one. If the notice is in the 30-day notice. A converting credit
methods and procedures of membership not on the home page of the Web site, union may not distribute ballots with
vote. the home page must have a clear and either the 90-day or 60-day notice, in
708a.10 Completion of conversion. conspicuous link, visible on a standard any other written communications, or in
708a.11 Limit on compensation of officials. monitor without scrolling, to the notice. person before the 30-day notice is sent.
708a.12 Voting incentives. (2) The public notice must include the (b)(1) The notice to members must
708a.13 Voting guidelines. following: adequately describe the purpose and
Authority: 12 U.S.C. 1766, 12 U.S.C. (i) The name and address of the credit subject matter of the vote to be taken at
1785(b). union; the special meeting or by submission of
the written ballot. The notice must (ii) The following language: ‘‘A vote economic benefit a director or senior
clearly inform members that they may FOR the proposal means that you want management official will or may receive
vote at the special meeting or by your credit union to become a mutual including receipt of or an increase in
submitting the written ballot. The notice savings bank. A vote AGAINST the compensation and an explanation of any
must state the date, time, and place of proposal means that you want your foreseeable stock-related benefits
the meeting. credit union to remain a credit union.’’ associated with a subsequent conversion
(2) The notices that are submitted 90 This language must be displayed in a to a stock institution or mutual holding
and 60 days before the membership vote clear and conspicuous fashion company structure. The explanation of
on the conversion must state in a clear immediately beneath the FOR and stock-related benefits must include a
and conspicuous fashion that a written AGAINST blocks.
comparison of the opportunities to
ballot will be mailed together with (5) The ballot may also include voting
another notice 30 days before the date instructions and the recommendation of acquire stock available to officials and
of the membership vote on conversion. the board of directors (i.e., ‘‘Your Board employees with those opportunities
The notice submitted 30 days before the of Directors recommends a vote FOR the available to the general membership;
membership vote on the conversion Plan of Conversion’’) but may not (4) A clear and conspicuous
must state in a clear and conspicuous include any further information without disclosure of how the conversion from
fashion that a written ballot is included the prior written approval of the a credit union to a mutual savings bank
in the same envelope as the 30-day Regional Director. will affect the institution’s ability to
notice materials. (c) An adequate description of the make non-housing-related consumer
(3) For purposes of facilitating the purpose and subject matter of the loans because of a mutual savings
member-to-member contact described in member vote on conversion, as required bank’s obligations to satisfy certain
paragraph (f) of this section, the 90-day by paragraph (b) of this section, must lending requirements as a mutual
notice must indicate the number of include:
(1) A clear and conspicuous savings bank. This disclosure should
credit union members eligible to vote on
disclosure that the conversion from a specify possible reductions in some
the conversion proposal and state how
many members have agreed to accept credit union to a mutual savings bank kinds of loans to members; and
communications from the credit union could lead to members losing their (5) An affirmative statement that, at
in electronic form. The 90-day notice ownership interests in the credit union the time of conversion to a mutual
must also include the information listed if the mutual savings bank subsequently savings bank, the credit union does or
in paragraph (f)(9) of this section. converts to a stock institution and the does not intend to convert to a stock
(4) The member ballot must include: members do not become stockholders; institution or a mutual holding
(i) A brief description of the proposal (2) A clear and conspicuous company structure.
(e.g., ‘‘Proposal: Approval of the Plan disclosure of how a conversion from a
Charter Conversion by which (insert credit union to a mutual savings bank (d)(1) A converting credit union must
name of credit union) will convert its will affect members’ voting rights and if provide the following disclosures in a
charter to that of a federal mutual the mutual savings bank intends to base clear and conspicuous fashion with the
savings bank.’’); voting rights on account balances; 90-, 60-, and 30-day notices it sends to
(ii) Two blocks marked respectively as (3) A clear and conspicuous its members regarding the conversion:
‘‘FOR’’ and ‘‘AGAINST;’’ and disclosure of any conversion-related
IMPORTANT REGULATORY DISCLOSURE ABOUT YOUR VOTE

The National Credit Union Administration, the federal government agency that supervises credit unions, requires [insert name of credit union]
to provide the following disclosures:
1. LOSS OF CREDIT UNION MEMBERSHIP. A vote ‘‘FOR’’ the proposed conversion means you want your credit union to become a mutual
savings bank. A vote ‘‘AGAINST’’ the proposed conversion means you want your credit union to remain a credit union.
2. RATES ON LOANS AND SAVINGS. If your credit union converts to a bank, you may experience changes in your loan and savings rates.
Available historic data indicates that, for most loan products, credit unions on average charge lower rates than banks. For most savings
products, credit unions on average pay higher rates than banks.
3. POTENTIAL PROFITS BY OFFICERS AND DIRECTORS. Conversion to a mutual savings bank is often the first step in a two-step process
to convert to a stock-issuing bank or holding company structure. In such a scenario, the officers and directors of the institution often profit by
obtaining stock in excess of that available to other members.
(2) This text must be placed in a box, written in a manner that is simple and technical business terminology;
must be the only text on the front side easy to understand. Simple and easy to avoidance of explanations that are
of a single piece of paper, and must be understand means the communications imprecise and reasonably subject to
placed so that the member will see the are written in plain language designed different interpretations; and use of
text after reading the credit union’s to be understood by ordinary consumers language that is not misleading.
cover letter but before reading any other and use clear and concise sentences, (f)(1) A converting credit union must
part of the member notice. The back paragraphs, and sections. For purposes mail or e-mail a requesting member’s
side of the paper must be blank. A of this part, examples of factors to be proper conversion-related materials to
converting credit union may modify this considered in determining whether a other members eligible to vote if:
text only with the prior written consent communication is in plain language and (i) A credit union’s board of directors
of the Regional Director and, in the case has adopted a proposal to convert;
uses clear and concise sentences,

of a state-chartered credit union, the paragraphs and sections include the use (ii) A member makes a written request
appropriate state regulatory agency. of short explanatory sentences; use of that the credit union mail or e-mail
(e) All written communications from definite, concrete, everyday words; use materials for the member;
a converting credit union to its members of active voice; avoidance of multiple (iii) The request is received by the
regarding the conversion must be negatives; avoidance of legal and credit union no later than 35 days after
it sends out the 90-day member notice; make charges concerning improper, member submission is not proper for
and illegal, or immoral conduct; or posting, it will provide that submission
(iv) The requesting member agrees to (viii) Directly or indirectly and to the Regional Director for review as
reimburse the credit union for the without expressed factual foundation described in paragraph (f)(5) of this
reasonable expenses, excluding make statements impugning the stability section. The credit union may also post
overhead, of mailing or e-mailing the and soundness of the credit union. a content-neutral disclaimer using
materials and also provides the credit (5) If a converting credit union language similar to the language in
union with an appropriate advance believes some or all of a member’s paragraph (f)(3)(i) of this section.
payment. request is not proper it must submit the (9) A converting credit union must
(2) A member’s request must indicate member materials to the Regional inform members with the 90-day notice
if the member wants the materials Director within seven days of receipt. that if they wish to provide their
mailed or e-mailed. If a member The credit union must include with its opinions about the proposed conversion
requests that the materials be mailed, transmittal letter a specific statement of to other members they can submit their
the credit union will mail the materials why the materials are not proper and a opinions in writing to the credit union
to all eligible voters. If a member specific recommendation for how the no later than 35 days from the date of
requests the materials be e-mailed, the materials should be modified, if the notice and the credit union will
credit union will e-mail the materials to possible, to make them proper. The forward those opinions to other
all members who have agreed to accept Regional Director will review the members. The 90-day notice will
communications electronically from the communication, communicate with the provide a contact at the credit union for
credit union. The subject line of the requesting member, and respond to the delivery of communications, will
credit union’s e-mail will be ‘‘Proposed credit union within seven days with a explain that members must agree to
Credit Union Conversion—Views of determination on the propriety of the reimburse the credit union’s costs of
Member (insert member name).’’ materials. The credit union must then
transmitting the communication
(3) (i) A converting credit union may, immediately mail or e-mail the material
including providing an advance
at its option, include the following to the members if so directed by NCUA.
(6) A credit union must ensure that its payment, and will refer members to this
statement with a member’s material: section of NCUA’s rules for further
members receive all materials that meet
On (date), the board of directors of (name
the requirements of § 708a.4(f) on or information about the communication
of converting credit union) adopted a process. The credit union, at its option,
proposal to convert from a credit union to a before the date the members receive the
30-day notice and associated ballot. If a may include additional factual
mutual savings bank. Credit union members information about the communication
who wish to express their opinions about the credit union cannot meet this delivery
proposed conversion to other members may requirement, it must postpone mailing process with its 90-day notice.
provide those opinions to (name of credit the 30-day notice until it can deliver the (10) A group of members may make a
union). By law, the credit union, at the member materials. If a credit union joint request that the credit union send
requesting members’ expense, must then postpones the mailing of the 30-day its materials to other members. For
send those opinions to the other members. purposes of paragraphs (f)(2) and (f)(3)
The attached document represents the
notice, it must also postpone the special
meeting by the same number of days. of this section, the credit union will use
opinion of a member of this credit union. the group name provided by the group.
This opinion is a personal opinion and does When the credit union has completed
not necessarily reflect the views of the the delivery, it must inform the § 708a.5 Notice to NCUA.
management or directors of the credit union. requesting member that the delivery was
completed and provide the number of (a) If a converting credit union’s board
(ii) A converting credit union may not of directors approves a proposal to
add anything other than this statement recipients.
(7) The term ‘‘appropriate advance convert, it must provide the Regional
to a member’s material without the prior Director with notice of its intent to
approval of the Regional Director. payment’’ means:
(i) For requests to mail materials to all convert during the 90 calendar day
(4) The term ‘‘proper conversion- period preceding the date of the
related materials’’ does not include eligible voters, a payment in the amount
of 150% of the first class postage rate membership vote on the conversion.
materials that: (1) A credit union must give notice to
(i) Due to size or similar reasons are times the number of mailings, and
(ii) For requests to e-mail materials the Regional Director of its intent to
impracticable to mail or e-mail;
(ii) Are false or misleading with only to members that have agreed to convert by providing a letter describing
respect to any material fact; accept electronic communications, a the material features of the conversion
(iii) Omit a material fact necessary to payment in the amount of 200 dollars. or a copy of the filing the credit union
make the statements in the material not (8) If a credit union posts conversion- has made or intends to make with
false or misleading; related information or material on its another federal or state regulatory
(iv) Relate to a personal claim or a Web site, then it must simultaneously agency in which the credit union seeks
personal grievance, or solicit personal make a portion of its Web site available that agency’s approval of the
gain or business advantage by or on free of charge to its members to post and conversion. A credit union must include
behalf of any party; share their opinions on the conversion. with the notice to the Regional Director
(v) Relate to any matter, including a A link to the portion of the Web site copies of the notices the credit union
general economic, political, racial, available to members to post their views has provided or intends to provide to
religious, social, or similar cause, that is on the conversion must be marked members under §§ 708a.3 and 708a.4.
not significantly related to the proposed ‘‘Members: Share your views on the The credit union must also include a
conversion; proposed conversion and see other copy of the ballot form and all written
(vi) Directly or indirectly and without members views’’ and the link must also materials the credit union has
expressed factual foundation impugn a be visible on all pages on which the distributed or intends to distribute to
person’s character, integrity, or credit union posts its own conversion- members. The term ‘‘written materials’’
reputation; related information or material, as well includes written documentation or
(vii) Directly or indirectly and as on the credit union’s homepage. If a information of any sort, including
without expressed factual foundation credit union believes a particular electronic communications posted on a
Web site or transmitted by electronic determination of a member’s eligibility results of the membership vote to the
mail. to vote. Regional Director within 10 calendar
(2) As part of its notice to NCUA of (b) If it chooses, a credit union may days after the vote is taken.
intent to convert, the credit union’s seek a preliminary determination from (b) The certification must also include
board of directors must provide the the Regional Director regarding any of a statement that the notice, ballot and
Regional Director with a certification of the notices required under this part and other written materials provided to
its support for the conversion proposal its proposed methods and procedures members were identical to those
and plan. Each director who voted in applicable to the membership submitted to NCUA pursuant to
favor of the conversion proposal must conversion vote. The Regional Director § 708a.5. If the board cannot certify this,
sign the certification. The certification will make a preliminary determination the board must provide copies of any
must contain the following: regarding the notices and methods and new or revised materials and an
(i) A statement that each director procedures applicable to the explanation of the reasons for any
signing the certification supports the membership vote within 30 calendar changes.
proposed conversion and believes the days of receipt of a credit union’s
proposed conversion is in the best request for review unless the Regional § 708a.8 NCUA oversight of methods and
interests of the members of the credit procedures of membership vote.
Director extends the period as necessary
union; to request additional information or (a) The Regional Director will review
(ii) A description of all materials review a credit union’s submission. A the methods by which the membership
submitted to the Regional Director with credit union’s prior submission of any vote was taken and the procedures
the notice and certification; notice or proposed voting procedures applicable to the membership vote. The
(iii) A statement that each board does not relieve the credit union of its Regional Director will determine: if the
member signing the certification has obligation to certify the results of the notices and other communications to
examined all these materials carefully membership vote required by § 708a.6 members were accurate, not misleading,
and these materials are true, correct, or eliminate the right of the Regional and timely; the membership vote was
current, and complete as of the date of Director to disapprove the actual conducted in a fair and legal manner;
submission; and methods and procedures applicable to and the credit union has otherwise
(iv) An acknowledgement that federal complied with part 708a.
the membership vote if the credit union
law (18 U.S.C. 1001) prohibits any (b) After completion of this review,
fails to conduct the membership vote in
misrepresentations or omissions of the Regional Director will issue a
a fair and legal manner consistent with
material facts, or false, fictitious or determination that the methods and
the Federal Credit Union Act and these
fraudulent statements or representations procedures applicable to the
rules.
made with respect to the certification or membership vote are approved or
(c) After receiving the notice
the materials provided to the Regional disapproved. The Regional Director will
described in paragraph (a)(3) of this
Director or any other documents or issue this determination within 30
section, the Regional Director will
information provided to the members of calendar days of receipt from the credit
contact and consult with the
the credit union or NCUA in connection union of the certification of the result of
appropriate State Supervisory
with the conversion. the membership vote required under
(3) A state-chartered credit union Authority.
§ 708a.7 unless the Regional Director
must state as part of the notice required § 708a.6 Membership approval of a extends the period as necessary to
by § 708a.5(a) if its state chartering law proposal to convert. request additional information or review
permits it to convert to a mutual savings (a) A proposal for conversion the credit union’s submission. Approval
bank and provide the specific legal approved by a board of directors of the methods and procedures under
citation. A state-chartered credit union requires approval by a majority of the this paragraph remains subject to a
will remain subject to any state law members who vote on the proposal. credit union fulfilling the requirements
requirements for conversion that are (b) The board of directors must set a in § 708a.10 for timely completion of the
more stringent than those this part voting record date to determine member conversion.
imposes, including any internal voting eligibility that is at least one day (c) If the Regional Director
governance requirements, such as the before the publication of notice required disapproves the methods by which the
requisite membership vote for in § 708a.3. membership vote was taken or the
conversion and the determination of a (c) A member may vote on a proposal procedures applicable to the
member’s eligibility to vote. If a state- to convert in person at a special meeting membership vote, the Regional Director
chartered credit union relies for its held on the date set for the vote or by may direct that a new vote be taken.
authority to convert to a mutual savings written ballot filed by the member. The (d) A converting credit union may
bank on a state law parity provision, vote on the conversion proposal must be appeal the Regional Director’s
meaning a provision in state law by secret ballot and conducted by an determination to the NCUA Board. The
permitting a state-chartered credit union independent entity. The independent credit union must file the appeal within
to operate with the same or similar entity must be a company with 30 days after receipt of the Regional
authority as a federal credit union, it experience in conducting corporate Director’s determination. The NCUA
must: elections. No official or senior Board will act on the appeal within 90
(i) Include in its notice a statement management official of the credit union days of receipt.
that its state regulatory authority agrees or the immediate family members of any
that it may rely on the state law parity official or senior management official § 708a.9 Other regulatory oversight of
provision as authority to convert; and methods and procedures of membership
may have any ownership interest in or
(ii) Indicate its state regulatory vote.

be employed by the independent entity.
authority’s position as to whether The federal or state regulatory agency
federal law and regulations or state law § 708a.7 Certification of vote on that will have jurisdiction over the
will control internal governance issues conversion proposal. financial institution after conversion
in the conversion such as the requisite (a) The board of directors of the must verify the membership vote and
membership vote for conversion and the converting credit union must certify the may direct that a new vote be taken, if
it disapproves of the methods by which conversions of federally insured credit who became members of the federal
the membership vote was taken or the unions, federally insured state-chartered credit union as the second person listed
procedures applicable to the credit unions (FISCUs) are also subject on a joint account were treated like
membership vote. to state law on conversions. NCUA’s those individuals who were listed as the
position is that a state legislature or second person on a joint account
§ 708a.10 Completion of conversion. state supervisory authority may impose opened directly with the state-chartered
(a) After receipt of the approvals conversion requirements more stringent credit union. Specifically, both of those
under § 708a.8 and § 708a.9 the credit or restrictive than NCUA’s. States that groups were treated as non-members not
union may complete the conversion. permit this kind of conversion may have entitled to vote. This example makes the
(b) The credit union must complete substantive and procedural point that a credit union must be
the conversion within one year of the requirements that vary from federal law. diligent in maintaining a reliable
date of receipt of NCUA approval under For example, there may be different membership list.
§ 708a.8. If a credit union fails to voting standards for approving a vote. (c) Scheduling the special meeting.
complete the conversion within one While the Federal Credit Union Act NCUA’s conversion rule requires a
year the Regional Director will requires a simple majority of those who converting credit union to permit
disapprove of the methods and vote to approve a conversion, some members to vote by written mail ballot
procedures. The credit union’s board of states have higher voting standards or in person at a special meeting held
directors must then adopt a new requiring two-thirds or more of those for the purpose of voting on the
conversion proposal and solicit another who vote. A FISCU should be careful to conversion. Although most members
member vote if it still desires to convert. understand both federal and state law to may choose to vote by mail, a significant
(c) The Regional Director may, upon navigate the conversion process and number may choose to vote in person.
timely request and for good cause, conduct a proper vote. As a result, a converting credit union
extend the one year completion period (b) Eligibility to vote. should be careful to conduct its special
for an additional six months. (1) Determining who is eligible to cast meeting in a manner conducive to
(d) After notification by the board of a ballot is fundamental to any vote. No accommodating all members wishing to
directors of the mutual savings bank or conversion vote can be fair and legal if attend, including selecting a meeting
mutual savings association that the some members are improperly location that can accommodate the
conversion has been completed, the excluded. A converting credit union anticipated number of attendees and is
NCUA will cancel the insurance should be cautious to identify all conveniently located. The meeting
certificate of the credit union and, if eligible members and make certain they should also be held on a day and time
applicable, the charter of a federal credit are included on its voting list. NCUA suitable to most members’ schedules. A
union. recommends that a converting credit credit union should conduct its meeting
§ 708a.11 Limit on compensation of union establish internal procedures to in accordance with applicable federal
officials. manage this task. and state law, its bylaws, Robert’s Rules
No director or senior management (2) A converting credit union should of Order or other appropriate
official of an insured credit union may be careful to make certain its member parliamentary procedures, and
list is accurate and complete. For determine before the meeting the nature
receive any economic benefit in
example, when a credit union converts and scope of any discussion to be
connection with the conversion of a
from paper recordkeeping to computer permitted.
credit union other than compensation
recordkeeping, some member names (d) Voting incentives. Some credit
and other benefits paid to directors or
may not transfer unless the credit union unions may wish to offer incentives to
senior management officials of the
is careful in this regard. This same members, such as entry to a prize raffle,
converted institution in the ordinary
problem can arise when a credit union to encourage participation in the
course of business.
converts from one computer system to conversion vote. The credit union must
§ 708a.12 Voting incentives. another where the software is not exercise care in the design and
If a converting credit union offers an completely compatible. execution of such incentives.
incentive to encourage members to (3) Problems with keeping track of (1) The credit union should ensure
participate in the vote, including a prize who is eligible to vote can also arise that the incentive complies with all
raffle, every reference to such incentive when a credit union converts from a applicable state, federal, and local laws.
made by the credit union in a written federal charter to a state charter or vice (2) The incentive should not be
communication to its members must versa. NCUA is aware of an instance unreasonable in size. The cost of the
also state that members are eligible for where a federal credit union used incentive should have a negligible
the incentive regardless of whether they membership materials allowing two or impact on the credit union’s net worth
vote for or against the proposed more individuals to open a joint account ratio and the incentive should not be so
conversion. and also allowed each to become a large that it distracts the member from
member. The federal credit union later the purpose of the vote. If the board
§ 708a.13 Voting guidelines. converted to a state-chartered credit desires to use such incentives, the cost
A converting credit union must union that, like most other state- of the incentive should be included in
conduct its member vote on conversion chartered credit unions in its state, used the directors’ deliberation and
in a fair and legal manner. NCUA membership materials allowing two or determination that the conversion is in
provides the following guidelines as more individuals to open a joint account the best interests of the credit union’s
suggestions to help a credit union obtain but only allowed the first person listed members.
a fair and legal vote and otherwise fulfill on the account to become a member. (3) The credit union should ensure
its regulatory obligations. These The other individuals did not become that the incentive is available to every
guidelines are not an exhaustive members as a result of their joint member that votes regardless of how or
checklist and do not by themselves account, but were required to open when he or she votes. All of the credit
guarantee a fair and legal vote. another account where they were the union’s written materials promoting the
(a) Applicability of state law. While first or only person listed on the incentive to the membership must
NCUA’s conversion rule applies to all account. Over time, some individuals disclose to the members, as required by
§ 708a.12 of this part, that they have an The credit union should also design its regardless of whether they vote by mail
equal opportunity to participate in the incentives so that they are available or in person at the special meeting.
incentive program regardless of whether equally to all members who vote, [FR Doc. E6–21661 Filed 12–21–06; 8:45 am]
they vote for or against the conversion.
BILLING CODE 7535–01–P

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IMPORTANT REGULATORY DISCLOSURE ABOUT YOUR VOTE

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IMPORTANT REGULATORY DISCLOSURE ABOUT YOUR VOTE

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