NATIONAL CREDIT UNION ADMINISTRATION RIN: …

1 7535-01-UNATIONAL CREDIT UNION ADMINISTRATION12 CFR Part 701 RIN: 3133-AE31 Chartering and Field of MembershipAGENCY: NATIONAL CREDIT UNION ADMINISTRATION (NCUA). ACTION: final rule. SUMMARY: The NCUA Board (Board) is amending its chartering and field of membership rules with respect to applicants for a community charter approval, expansion or conversion. The Board will allow the option for an applicant to submit a narrative to establish the existence of a well -defined local community instead of limiting the applicant to a presumptive statistical community. Also, the Board will hold a public hearing for narrative applications where the proposed community exceeds a population of million people. Further, for communities that are subdivided into metropolitan divisions, the Board will permit an applicant to designate a portion of the area as its community without regard to division boundaries.

2 DATES: The final rule becomes effective September 1, 2018. 1 FOR FURTHER INFORMATION CONTACT: For program issues: Martha Ninichuck, Director; JeanMarie Komyathy, Deputy Director; Robert Leonard, Assistant Director; or Rita Woods, Assistant Director, Office of CREDIT UNION Resources and Expansion (CURE), at 1775 Duke Street, Alexandria, VA 22314 or telephone (703) 518-1140. For legal issues: Marvin Shaw, Staff Attorney, Office of General Counsel, at the above address or telephone (703) 518-6553. SUPPLEMENTARY INFORMATION: I. Background A. Overview The NCUA s Chartering and Field of Membership Manual, incorporated as Appendix B to part 701 of the NCUA regulations ( Chartering Manual ),1 implements the field of membership ( FOM ) requirements established by the Federal CREDIT UNION Act ( Act ) for federal CREDIT unions ( FCU ).2 An FOM consists of those persons and entities eligible for membership based on an FCU s type of charter.

3 In adopting the CREDIT UNION Membership Access Act of 1998 ( CUMAA ), Congress reiterated its longstanding support for CREDIT unions, noting their specific mission of meeting the CREDIT and savings needs of consumers, especially persons of modest means. 3 As amended by CUMAA, the FCU Act provides a choice among three charter types : a single group sharing a 1 Appendix B to 12 CFR part 701( Appendix B ).2 12 1759. 3 Pub. L. No. 105-219, 2, 112 Sta. 913 (Aug 7, 1998). 2single occupational or associational common bond;4 a multiple common bond of groups that each have a distinct occupational or associational common bond among group members;5 and a community common bond among persons or organizations within a well-defined local community, neighborhood, or rural district. 6 Congress has delegated to the Board broad authority in the FCU Act to define what constitutes a well -defined local community ( WDLC ), neighborhood, or rural district for purposes of making any determination regarding a community CREDIT UNION ,7 and to establish applicable criteria for any such To qualify as a WDLC, neighborhood, or rural district, the Board requires the proposed area to have specific geographic boundaries, such as those of a city, township, county (single or multiple portions of a county) or their political equivalent, school districts or a clearly identifiable neighborhood.

4 9 The boundaries themselves may consist of political borders, streets, rivers, railroad tracks, or other static geographical The Board continues to emphasize that common interests or interaction among residents within those boundaries are essential features of a local community. Until 2010, the Chartering Manual required FCUs seeking to establish an area as a WDLC to submit for NCUA approval a narrative, supported by documentation, that demonstrated indicia of common interests or interaction among residents of a proposed community (the narrative4 1 2 1 759(b)(1). 5 Id. 1759(b)(2)(A). 6 Id. 1759(b)(3) . 7 Id. 1759(g)(1)(A). 8 Id. 1759(g)(1)(B). 9 Appendix B, Ch. 2, section 10 Appendix B, Ch. 2, section 3model ) if the community extended beyond a single political A WDLC is required to consist of contiguous areas, and the Chartering Manual previously included the term contiguous in its In 2010, the Board replaced the narrative model in favor of an objective model that provided CREDIT unions a choice between two statistically based presumptive communities that each by definition qualifies as a WDLC (the presumptive community model ).

5 13 In doing so, the Board inadvertently removed the term contiguous from the Chartering Manual, but did not intend to remove the requirement that the relevant areas be contiguous. One kind of presumptive community is a Single Political Jurisdiction .. or any contiguous portion thereof ( SPJ ), regardless of The second is a single Core Based Statistical Area ( CBSA 15) as designated by the Census Bureau ( Census ) or a well-11 75 FR 36257 (June 25, 2010). 12 68 FR 18334 (April 15, 2003) The well- defined local community, neighborhood, or rural district may be met if: The area to be served is multiple contiguous political jurisdictions, , a city, county, or their political equivalent, or any contiguous portion thereof and if the population of the requested well-defined area does not exceed 500, 13 As explained in the final rule that discontinued the use of the narrative model, the Board does not believe it is beneficial to continue the practice of permitting a community charter applicant to provide a narrative statement with documentation to support the CREDIT UNION 's assertion that an area containing multiple political jurisdictions meets the standards for community interaction and/or common interests to qualify as a WDLC.

6 As [the proposed rule] noted, the narrative approach is cumbersome, difficult for CREDIT unions to fully understand, and time consuming.. While not every area will qualify as a WDLC under the statistical approach, NCUA stated it believes the consistency of this objective approach will enhance its chartering policy, assure the strength and viability of community charters, and greatly ease the burden for any community charter applicant. 75 FR 36257, 36260 (June 25, 2010). 14 Appendix B, Ch. 2, A Chartering Manual defines single political jurisdiction as a city, county, or their political equivalent, or any single portion thereof. 15 A CBSA is composed of the country s Metropolitan Statistical Areas and Micropolitan Statistical Areas. Metropolitan Statistical Areas are defined by OMB as having at least one urbanized area of 50,000 or more population, plus adjacent territory that has a high degree of social and economic integration with the core as measured by commuting ties.

7 Micropolitan Statistical Areas are identical to Metropolitan Statistical Areas except that their urbanized areas are smaller, , the urbanized area contains at least 10,000 but fewer than 50,000 people. A Metropolitan Division is a subdivision of a large Metropolitan Statistical Area. Specifically, a Metropolitan Division is a county or group of counties within a Metropolitan Statistical Area that has a population core of at least million. OMB Bulletin No. 15-01 (July 15, 2015) 4defined portion thereof, which under the 2010 final rule was subject to a million population , in the case of a CBSA that the Office of Management and Budget ( OMB ) has subdivided into metropolitan divisions, a community consisting of a portion of the CBSA is required to conform to the boundaries of such divisions. Under either presumptive community option, an FCU was required to demonstrate that it is able to serve its entire proposed community, as demonstrated by its business and marketing plans that must accompany an application to approve a new community charter, expansion or 2016 Rulemakings On October 27, 2016, the Board issued two rulemakings relating to the Chartering Manual.

8 One was a final rule and the other a proposed rule. In the final rule,18 the Board comprehensively amended the Chartering Manual to organize it in a more efficient framework and to maximize member access to FCU services to the extent permitted by law. The final rule permitted an applicant to utilize, in limited circumstances, a narrative approach supported by objective documentation to demonstrate that an area adjacent to a presumptive community qualifies as part of that community. In the proposed rule, the Board proposed three additional changes to the community charter Specifically, the Board proposed permitting an applicant for a community charter to submit a narrative to establish the existence of a WDLC, as an alternative to selecting a 16 Id. A total population cap of million is appropriate in a multiple political jurisdiction context to demonstrate cohesion in the community.

9 75 FR 36257, 36260 (June 25, 2010). 17 Appendix B, Ch. 2, 18 81 FR 88412 (Dec. 7 2016). 19 81 FR 78748 (Nov. 9, 2016). 5presumptive statistical community. The narrative would serve the same purpose as in years prior to 2010 when the narrative model was used exclusively. The Board also proposed increasing to 10 million the population limit on a community consisting of a statistical area or a portion thereof. In that regard, the Board requested comment on whether there should be any population limit at all for a statistical area and whether a public hearing would be appropriate for areas with large populations. Further, the Board proposed permitting an FCU to designate a portion of a statistical area as its community without regard to metropolitan division boundaries. The Board noted that consistent with its responsibility under CUMAA to facilitate access to FCU services, the proposal sought to provide FCUs greater flexibility in that regard.

10 The Board received approximately 55 comments from federal and state-chartered CREDIT unions, CREDIT UNION associations, CREDIT UNION leagues, banks, bank trade associations, and consultants. The majority of commenters were CREDIT UNION affiliated entities, which uniformly supported the proposed rule. In contrast, the four bank-affiliated commenters uniformly opposed the proposal. II. Federal District Court Decision Several provisions of the 2016 final rule were challenged by the American Bankers Association. On March 29, 2018, the District Court for the District of Columbia upheld two provisions and vacated two provisions of the 2016 final rule addressing community Specifically, the court upheld the provision allowing an FCU to serve areas within a CBSA that do not include the CBSA s The court also upheld the provision allowing an FCU to add an adjacent area to a presumptive community.