NATIONAL CREDIT BILL, 2005

1. MS ASTRID LUDIN DEPUTY DIRECTOR GENERAL DEPARTMENT OF TRADE AND INDUSTRY MAY 2005 NATIONAL CREDIT BILL, 2005

2. ORGANISATION OF PRESENTATION • Need for a Review • Background • Process including consultation • Objectives and principles of Bill • Scheme of the Bill • Detailed overview of the Bill

3. Need for a Review Criticisms of a dysfunctional market based on: • Fragmented and outdated legislation; • Ineffective consumer protection, particularly in relation to consumers in low income groups • High cost of credit & in some areas access remains a problem • Rising levels of over-indebtedness and; • Reckless behaviour by credit providers & exploitation by micro-lenders, intermediaries, debt collectors & debt administrators

4. Research at a cost of over R2 million... Research Reports The Cost Volume & Allocation of consumer credit in South Africa. Dr. P Hawkins Credit Contract disclosure & associated factors. Reality Research Africa A Market Research Report. Rudo Research & Training Expert Opinions Interest Rates & Usury in Emerging Markets. Prof G Dymski Assessment of current SA legislation Regulation of payday lending in the United States. Prof. P Meagher Research

5. Primary Findings Consumers: - • Feel disempowered, see certain products as dangerous but do not believe they have much choice • Would like more disclosure, better treatment • Indicate that the urgency of obtaining credit/excitement of making a purchase ‘overrides reason’ when entering a contract Industry & Experts: - • Agree current laws are weak, outdated & inconsistent in treatment of different products & poor enforcement

6. Primary Findings Legislative weakness & weak enforcement a major contributor to current problems, aggravated by problems in contract enforcement through the courts… Compared to International Best Practices • SA at least 20 years behind other leading dispensations but current challenges very similar: over-indebtedness, marginal/high cash lenders, credit life insurance, disclosure/consumer awareness & credit bureaux

7. Key Findings • R362bn consumer credit market, approximately 19 million accounts, with South Africans paying about R95bn in interest & fees • BUT a large number of consumers are paying as much as 100% p.a. on loans & furniture finance..from micro-lenders as well as leading retailers & banks • The benefit of access to finance is undermined by this extremely high cost of finance, & skewed allocation, with least access to those who need it most • YET, discrimination not the main cause – rather legislative weaknesses

8. Suggestions Recommendations of the Technical Committee:- • Move away from a system of ineffectual price-control that results in misleading disclosure – distorts the market & segregates it into the “Super Included” and “Super Excluded” • Create a system that integrates the market • Provide for effective enforcement • Curtail over-indebtedness • Provide assistance for consumers who are vulnerable or unfairly treated

9. Background • No significant review of credit legislation: Usury Act, 1968 & Credit Agreements Act, 1980 – over past 25 years • Need for a holistic review long acknowledged – despite various attempts, only recently significantly progressed • Mandate from the dti to Technical Committee to review consumer credit policy and legislation – Report received by the dti in October 2003

10. Background • Briefings to stakeholders, including to Parliamentary Committee on the findings of Technical Committee: October – December 2003 • Round Table meeting with International Review Panel: - June 2004 • Consumer credit policy framework and Bill finalized– Bill published for general information and comment in Government Gazette on 17 August 2004 • After consultation with stakeholders, revised Bill sent to the State Law Advisers in November 2004 for certification

11. Process • Information sessions country wide on draft Bill: August – September 2004 • More than 80 submissions received from organizations and individuals: Consultation with stakeholders, including provinces: September – November 2004 • Workshop with Portfolio Committee in Parliament: October 2004 • Policy tabled at Nedlac and process concluded in agreement: September 2004 – April 2005

12. Promote enhanced consumer protection Pre-agreement disclosure, quotes & contracts Sales & marketing Enhanced enforcement & redress through new institutional framework Promote competition & transparency All credit transactions treated equally but recognition of different products & categories of agreements Objectives of Bill • Control over-indebtedness & reckless lending • Debt counselors & debt review with recommendations to the Magistrates’ Court • Debt enforcement by repossession & judgment • Obligation to properly assess consumers ability to meet obligations

13. Chapter 1: Interpretation, purpose & application Chapter 2: Consumer credit institutions Chapter 3: Consumer credit industry regulation Chapter 4: Consumer credit policy Chapter 5: Consumer credit agreement Chapter 6: Collection, repayment, surrender & debt enforcement Chapter 7: Dispute settlement other than debt enforcement Chapter 8: Enforcement of Act Chapter 9: General provisions Schedules 1-3 Scheme of the Bill

14. Chapter 1 Interpretation, Purpose & Application • Part A: Interpretation- definitions • Part B: Purpose & application • Part C: Classification of credit agreements: -Small (pawn & small credit transactions); Intermediate (credit facilities & mid sized transactions); Large (mortgages & large transactions)

15. Chapter 2 Consumer Credit Institutions • Part A – National Credit Regulator Core functions include registration of all credit providers operating in more than one province, compliance monitoring & enforcement; complaints investigation (liaison with relevant regulators & provincial consumer desks). • Reporting to Minister & Parliament • Funded from fees & government allocations

16. Chapter 2 Consumer Credit Institutions Part B – National Consumer Tribunal • Establishment & constitution of Tribunal • Prosecution of credit providers by Regulator • Declaratory orders Part C – Administrative Matters

17. Chapter 2 Consumer Credit Institutions Part D – National & Provincial Co-operation • Co-Operative exercise of concurrent jurisdiction • Provincial regulators if provincial legislation passed & institutions established • Provincial registration if credit provider has branches in only one province

18. Chapter 3 Consumer Credit Industry Regulation Part A – Registration requirements, Criteria & Procedures • Who must register?: - credit providers: >100 agreements or book > threshold (R500,000+); juristic persons & individuals; minimal ‘fit & proper’ tests on owners & directors; BEE commitment –’balanced score card’ • Also registration requirement for credit bureaus & debt counselors • Special category for “developmental credit providers” – credit unions; education; small business & housing Part B • Compliance procedures & cancellation of registration

19. Chapter 4 Consumer Credit Policy The Bill codifies a number of fundamental rights of consumers Part A –Consumer Rights • Protection against discrimination in credit granting, right to reasons for credit being refused, right to information in official language, right to receive documents

20. Chapter 4 Consumer Credit Policy Part B – Confidentiality, Personal Information & Consumer Credit Records • Minister may require National Credit Regulator to establish a National Register of credit agreements- to contain minimum data, to perform affordability assessments –loan and repayment status only; no ‘payment history’ & compulsory submission by credit providers • But: Affordability assessments not necessarily linked to NCR data • Credit Bureau information- right to accurate information, access to information & notification of adverse reports

21. Chapter 4 Consumer Credit Policy Part C – Credit Marketing Practices • Prohibited – “Negative option marketing”; automatic increases in facility limits (except annual = ave monthly cash advances/ credits); telemarketing & sale of client information only if consent; agreements at home only if invited; Marketing or agreements at work only if agreement if employer/union • Advertising practices- prescribed statements & disclosure of cost; unregistered providers prohibited from advertising

22. Chapter 4 Consumer Credit Policy Part D – Over- indebtedness & Reckless Credit • Over-indebtedness – criteria to determine status of consumer – Failure to take reasonable steps to assess repayment history and “existing financial means, prospects and obligations” and extending credit “despite the fact that the preponderance of information available to the credit provider” was not supportive of such a decision

23. Chapter 4 Consumer Credit Policy Part D – Over- indebtedness & reckless credit • If reckless – Magistrates may not issue court orders for debt recovery; Debt counselor may recommend debt cancellation or restructuring; Agreement may be suspended or obligation reduced by Court or Tribunal; Provider may be prosecuted by Regulator • BUT these provisions only available when consumers disclosed accurately + unjust enrichment prevented

24. Chapter 5 Consumer Credit Agreement Part A – Unlawful Agreements & provisions • Sets out the application of the provisions of unlawful credit agreements together with criteria for unlawful provisions of credit agreement • Prohibits the inducement by the credit provider of the consumer to enter into a supplementary agreement or sign a document containing an unlawful provision

25. Chapter 5 Consumer Credit Agreement Part B – Disclosure, form and effect of credit agreements • Requires pre-agreement disclosure – statement on terms & conditions • Outlines treatment of forms of agreement, including delivery to the consumer & liability for lost or stolen cards or other identification devices • Provisions set out for: - charges deferrals & waivers, address for notice and consumers obligation to disclose location of goods, substituted goods • Obligations of pawn-brokers

26. Chapter 5 Consumer Credit Agreement Part C – Consumer’s liability, interest, charges and fees • Provisions on the cost of credit income on loans limited to interest to: - application & service fees Minister to impose limits, whole market or by sub-sector (but not to distort market, reduce access) • Allowed: default administration charge; collection costs; extended warranty; delivery, installation & fueling, connection taxes, charges unrelated to credit provision …at cost recovery • Codify in duplum rule – default interest limited to settlement value at point of default

27. Chapter 5 Consumer Credit Agreement Part C – Consumer’s liability, interest, charges and fees • Credit life insurance: -Must be reasonable and conform to prescribed standards; if policy proposed by provider – charged monthly, no capitalisation of single premium insurance –Regulator to monitor premiums & claims –Does not prohibit insurance on value of goods purchased (if selected by consumer)

28. Chapter 5 Consumer Credit Agreement Part D – Consumer’s liability, interest, charges and fees • Provisions applying to the delivery, form & content of statements of accounts in so far as certain transactions – excludes pawn transactions, discounted & incidental credit agreement

29. Chapter 5 Consumer Credit Agreement Part E – Alteration of credit agreement • Procedures regarding the alteration of original or amended credit agreement & changes by agreement & provisions dealing with reductions & increases under a credit facility Part F- Rescission & termination of credit agreements • Provides for consumers right to rescind agreement and procedures for the termination of agreement by either consumer or credit provider

30. Chapter 6 Collection, Repayment, Surrender & debt Enforcement Part A – Collection & repayment practices • Provisions regarding settlement of agreement, including early payments Part B – Surrender of goods • Provisions outlining process in the surrender of goods

31. Chapter 6 Collection, Repayment, Surrender & Debt Enforcement Part C – Debt enforcement by repossession & judgment • Court proceedings only commence: 20 days after default + 10 days since informed of right to approach debt counselor, Ombud etc • Court to enquire whether or not reckless • Repossession – Notify – Value – Consumer nominate buyer or resume obligations – No response: sell at best price

32. Chapter 7 Dispute Settlement other than Debt Enforcement Part A – Alternative dispute resolution • Provisions for the choice of the appropriate forum for the resolution of disputes, including Consumer Courts & Ombuds Part B –Initiating Complaints or Applications • Provisions for the initiation of complaints to the National Credit Regulator & applications to the Tribunal Part C – Informal Resolution or Investigation of Complaints • Provisions for the proactive resolution of disputes by the National Credit Regulator

33. Chapter 7 Dispute Settlement other than Debt Enforcement Part D – Tribunal consideration of complaints, applications & referrals • Provisions for the functioning of the Tribunal, including rules of procedure, costs & appeals & reviews Part E- Tribunal Orders • Provisions outlining circumstances for the Tribunal to make & enforce orders & impose administrative fines

34. Chapter 8 Enforcement of the Act Part A – Searches • Procedural requirements in respect of authority and the conduct to ‘enter & search’ premises Part B - Offences • Administrative matters set out in respect of the implementation of the Act, including failure to attend a hearing and applicable penalties in terms of the Act Part C –Miscellaneous Matters Provisions including the ‘onusofproof’ and the service of documents

35. Chapter 9 General Provisions • Matters dealt with include the publication of regulations by the Minister, conflicting legislation, consequential amendments, repeal of laws & transitional arrangements Schedules 1 – 3 • Provisions setting out the application of the Act, including to pre-existing agreements and Provincial regulatory capacity

36. Summary Complete overhaul of credit law, with reference to international best practices: - in order to • Modernise & integrate legislation; • Remove perverse incentives to credit providers; • Improve disclosure, contracting standards & create effective access to redress; • Deal with reckless lending & over-indebtedness • …that will evolve & improve through case law & revision Create institutional capacity for effective enforcement

37. THANK YOU