Richard L. Fowler v. Caliber Home Loans, Inc.
Dissenting Opinion
The federal filed rate doctrine, a creature of federal common law derived from various federal statutes, has been around since 1907. Despite its existence for over 100 years, Pennsylvania and Florida have so far not adopted it. The majority, without seeking guidance from the supreme courts of Pennsylvania or Florida, now confidently decrees that the federal filed *1328rate doctrine is the governing rule in these two states. The majority also expands the filed rate doctrine to also bar claims against anyone whose contract seemingly concerns a filed rate. The majority then applies its sweeping rule to parties which have not filed any rates with state regulators.
I respectfully disagree with the majority's analysis and holding. First, I would certify this case to the supreme courts of Pennsylvania and Florida and ask whether they have adopted the filed rate doctrine in some form. Second, assuming that the filed rate doctrine applies in its unadulterated federal form, it does not bar a breach-of-contract claim that does not challenge a filed rate. Third, the filed rate doctrine does not-and should not-extend to lenders who are not regulated by rate-setting agencies, are not required to file rates, and are not sellers of filed rates.
I
The Supreme Court derived the federal filed rate doctrine from federal statutory and regulatory schemes. This case does not involve any such federal schemes; it instead concerns the regulatory systems of Pennsylvania and Florida. These two states require insurers to file insurance premiums (i.e., rates) with the appropriate state regulatory agencies. Because no federal law mandates these filings and no federal agency regulates these rates, we must look to the laws of Pennsylvania and Florida to determine whether something akin to the federal filed rate doctrine governs in these states.
A
The federal filed rate doctrine is a court-made rule crafted by the Supreme Court in the early 1900s. In one of the seminal cases, Texas & Pacific Railway Co. v. Abilene Cotton Oil Co. ,
The Supreme Court has applied the filed rate doctrine to other claims and industries regulated under the ICA. See, e.g. , Louisville & N. R.R. Co. v. Maxwell ,
These cases and others confirm that the Supreme Court has consistently treated questions about the existence and scope of *1329the doctrine as a question of federal statutory interpretation. See, e.g. , Cent. Office. Tel. ,
In short, for the federal filed rate doctrine to apply, it must be tied to a federal statute creating a federal regulatory scheme. When the regulatory scheme is instead created by a state, we must look to that state's law to figure out whether a state-law filed rate doctrine exists.
B
To determine whether a filed rate doctrine exists under state law, we first ask whether the state has adopted or disclaimed the filed rate doctrine. Barring an explicit holding from the state courts, we must either certify the question to the appropriate state supreme court or review the state's regulatory scheme and make an Erie guess, see Erie R. Co. v. Tompkins ,
Our decision in Taffet v. Southern Co .,
Taffet is not unique. The vast majority of federal and state courts look to state law to decide whether state regulatory schemes warrant a filed rate doctrine of some kind. See, e.g. , Alston v. Countrywide Fin. Corp. ,
*1330Anzinger v. Ill. State Med. Inter-Ins. Exch. ,
The majority cites several cases in an attempt to show that a state law analysis is unnecessary. But those cases provide the majority with little cover. First, in In re N.J. Title Insurance Litigation ,
The Rules of Decision Act, in language essentially unchanged since its original enactment in 1789, provides that "[t]he laws of the several states, except where the Constitution or treaties of the United States or Acts of Congress otherwise require or provide, shall be regarded as rules of decision in civil actions in the courts of the United States, in cases where they apply."
Federal common law does exist in areas involving " 'uniquely federal interests' " that "are ... committed by the Constitution and laws of the United States to federal control." Boyle v. United Techs. Corp. ,
C
The majority acknowledges this problem, but fails to grapple with its significance. It tacks onto its federal analysis a reference to the regulatory schemes in Pennsylvania and Florida and concludes that there is "enough to make an educated guess" that these states have adopted a filed rate doctrine. Maj. Op. at 1325. I disagree.
As the defendants admit, the Pennsylvania and Florida state courts have never said anything about the filed rate doctrine: "Neither Florida's nor Pennsylvania's highest court has decided whether the filed-rate doctrine bars claims like plaintiffs'. Nor have either state's intermediate appellate courts squarely addressed the issue." Fowler Caliber Br. at 16. Given this silence, the majority's "educated guess" is nothing more than a hopeful shot in the dark.
The majority cites several cases from Florida, but not one adopted or even mentioned the filed rate doctrine. See Nat'l Council on Comp. Ins. v. Fee ,
The majority fares no better in Pennsylvania. The sole state appellate decision cited by the parties that comes close to being relevant is Petty v. Insurance Department ,
My own search reveals only one other potentially relevant Pennsylvania state court case, an unpublished opinion from a Pennsylvania trial court. In Milkman v. American Travellers Life Ins. Co. ,
If we are looking for help as to Pennsylvania law, we should consider the Third Circuit's decision in Alston ,
We should pay particular attention to Alston because Pennsylvania is within the Third Circuit. Federal courts have long recognized that they should give some deference to the decisions of other federal courts deciding the law of a state within their respective circuits. See MacGregor v. State Mut. Life Assur. Co. of Worcester, Mass. ,
The majority disregards this lack of state precedent, sidesteps Alston , and concludes that the regulatory systems Pennsylvania and Florida have established are alike enough to those in Taffet to warrant imposing the federal filed rate doctrine. But we should not be so quick to think that any similar state regulatory system demands the adoption of the filed rate doctrine in its federal form.
The federal filed rate doctrine is not without its critics, as the Supreme Court has noted. See Square D Co. v. Niagara Frontier Tariff Bureau, Inc. ,
For these and other reasons, some state courts have chosen to adopt a narrow filed rate doctrine applicable only to certain rates established by particular state agencies. See, e.g. , Schermer ,
Some states have chosen to adopt an alternative to the federal filed rate doctrine. For example, California rejects the filed rate doctrine and allows lawsuits challenging the reasonableness of rates. See Cellular Plus, Inc. v. Sup. Ct. ,
Nor is the filed rate doctrine, even in its federal form, necessarily as robust as the majority assumes. Federal courts have long held that claims that touch on regulated entities or rates are not barred by the filed rate doctrine, as long as they do not challenge the reasonableness of the rate. See Litton Sys., Inc. v. AT&T Co. ,
I could go on, but there is no need to. The point is that states can choose, for their own reasons, not to have a filed rate doctrine, or to have one that is much narrower in scope than the federal version. The majority's unwarranted assumption that Pennsylvania and Florida would adopt a full-throated version of the federal filed rate doctrine is not faithful to our notions of federalism. Given the vast variety of approaches available to the states, which function as laboratories in our federal system, see New State Ice Co. v. Liebmann ,
D
We have said that "[w]hen substantial doubt exists about the answer to a material state law question upon which the case turns ... [we] should certify that question to the state supreme court in order to avoid making unnecessary state law guesses and to offer the state court the opportunity to explicate state law." Forgione v. Dennis Pirtle Agency, Inc. ,
Given the dearth of case law in Pennsylvania and Florida, I would certify to the supreme courts of these states two questions: (1) whether they would adopt a filed rate doctrine, and, (2) if so, in what form. See Pa. R. App. P. 3341 ; Fla. Const. art. V, § 3 (b)(6). We should not ignore the interests of these states in establishing their own regulatory schemes by harkening back to the now-discredited days of general federal common law. See Swift v. Tyson , 41 U.S. (16 Pet.) 1, 18-19,
II
Inflicting federal strictures on state regulatory systems is not the majority's only error. Even if something like the federal *1335filed rate doctrine applies in Pennsylvania and Florida, there is no reason for it to bar the homeowners' breach-of-contract claims.
A
At issue here are two distinct contracts: one between the homeowners and the lenders of their mortgages, and one between the lenders and the insurance companies who sold hazard insurance to the lenders. I treat the two actions before us ( Patel and Fowler ) as one because the complaints are virtually identical, except for the identities of the lender defendants.
The homeowners mortgaged their property or borrowed money through loans secured by their homes. The lenders are Caliber Home Loans, Inc. and Specialized Loan Servicing, LLC (collectively, "the lenders"), which bought commercial hazard insurance from American Security Insurance Company.
The mortgage contracts between the homeowners and the lenders are entirely distinct from the commercial insurance agreements between the lenders and ASIC. The mortgage contracts give the homeowners a choice to either buy hazard insurance themselves or to reimburse the lender for "the cost" of insurance. See Fowler Complaint ¶ 48.
When the homeowners failed to insure their homes, the lenders bought hazard insurance to protect themselves from loss in case the homes were damaged. The lenders purported to pay the price of hazard insurance ASIC submitted in schedules to state insurance regulators in Pennsylvania and Florida. See Patel Appellees' Br. at 7-8; Fowler ASIC Br. at 9-10; Fowler Caliber Br. at 17-18. These schedules disclose the nominal price of the hazard insurance that ASIC charges every customer, including the lenders.
The homeowners claim that the lenders found a way to pay less than this regulated price. The complaints allege that the lenders engaged in several transactions with ASIC that amounted to kickbacks. See, e.g. , Fowler Complaint ¶¶ 3, 6, 25-28, 31-33, 36, 37, 39. These transactions effectively lowered the amounts the lenders paid for insurance.
The scheme alleged by the homeowners has two components. First, ASIC paid the lenders commissions that discounted their cost of insurance. A typical insurance customer might purchase insurance through an independent broker and pay that person a commission. Here, the "brokers" were in fact affiliated with the lenders themselves, so the commissions effectively discounted the lenders' purchase of insurance. Second, the lenders induced ASIC to provide other forms of value to retain their business. For instance, ASIC performed some of the lenders' mortgage-servicing *1336work for less than fair-market value. The lenders also "sold reinsurance" of the same policies back to ASIC without risk. The homeowners allege that these and other transactions discounted "the cost" the lenders paid ASIC for insurance, which was significantly lower than the nominal price the lenders supposedly paid.
Nevertheless, the lenders still required the homeowners to reimburse them for the full nominal price, or "the cost," of the force-placed insurance as required by the mortgage contracts. The homeowners contend that because the kickbacks reduced the cost the lenders paid, the amount they must reimburse the lenders should also be reduced. Accordingly, they assert various federal and state-law claims against the lenders, and against ASIC for participating in and benefiting from the purported unlawful scheme.
B
ASIC and the lenders argue that the filed rate doctrine bars the homeowners' claims because they amount to generalized grievances that ASIC's insurance rates are unreasonably high, and seek only to force the defendants to sell (in ASIC's case) or bill for (in the lenders' case) insurance at lower rates. See Patel Appellees' Br. at 12; Fowler ASIC Br. at 17; Fowler Caliber Br. at 9. But that argument misreads the homeowners' claims. The homeowners assert that, regardless of the insurance rate ASIC charged, the lenders are contractually obligated to charge only the amount of insurance they actually paid. By engaging in side agreements with ASIC for "commissions," "reinsurance," and other kickbacks-transactions that are of course, unregulated-the lenders found a way to discount their insurance costs. Given that the mortgage contracts between the homeowners and the lenders required the lenders to charge the homeowners for only "the cost" of insurance, the lenders breached those contracts by demanding more than the discounted cost they paid ASIC. See, e.g. , Patel Compl. ¶¶ 5, 26, 32, 33, 47, 89.
The majority ignores this theory at the heart of the homeowners' case. The majority concludes, in a reductive characterization of the claims, that they are wholly about challenging filed rates. But at the motion to dismiss stage, we must read the facts alleged in the light most favorable to the homeowners, allow the pleading of alternative and inconsistent theories, and keep "the good and leave[ ] the bad." Jones v. Bock ,
C
The majority also ignores how the federal filed rate doctrine works in practice. Even if the doctrine applies here, and even if we read the complaints to touch on rates filed with state regulators, the defendants have still failed to demonstrate the facts necessary to invoke the doctrine's protection.
The federal filed rate doctrine is an affirmative defense. See In re Rawson Food Serv., Inc. ,
Florida Municipal exemplifies this requirement. There, an electricity customer (a municipal agency) wanted to buy certain electricity services-called "network service"-but the utility refused to sell. See id . at 615. The agency sued, asserting breach of contract and antitrust claims. The utility countered that the federal filed rate doctrine barred the suit because the agency actually wanted to modify different services-called "point-to-point" services-the price for which was on file with the Federal Energy Regulatory Commission pursuant to the Federal Power Act. See id . The district court granted summary judgment for the utility on the federal filed rate doctrine, but we vacated the judgment. We held that it was an open question whether "network service" was distinct from "point-to-point" service, and consequently whether the rates for "point-to-point" service were at issue. See
In short, we confirmed in Florida Municipal that regulated sellers are not immune from litigation when the claim does not concern the entity's regulated services. See id . And we reinforced the common-sense notion that whether a filed rate applies to a given transaction is a precise factual inquiry, not a loose analysis to be done freehand.
In the absence of Pennsylvania or Florida precedent adopting some form of the filed rate doctrine, we do not know what these states would require for the lenders or ASIC to assert it as a defense. The scope of an affirmative defense is usually defined by the jurisdiction that established it. See Hicks on Behalf of Feiock v. Feiock ,
Here, as in Florida Municipal , the defendants seek to invoke the filed rate doctrine without having established that a state filed rate actually governs the challenged transactions-e.g., the kickbacks the lenders received from ASIC. The record reveals that ASIC submitted some rate filings with the district court. See *1338Fowler D.E. 91 at 12 (taking judicial notice of Rebecca H. Voyles Decl., D.E. 23-4); Patel D.E. 36 at 4 (taking judicial notice of various rate-schedule documents purportedly filed with state regulators, D.E.s 22-7, 22-13, and 22-15 through 22-18). But none of these documents mention the side agreements described in the homeowners' complaints.
Moreover, while it is theoretically possible that ASIC's rate filings included the "commissions" paid to the lenders, the record is devoid of any reference that such filed rates exist. SLS and ASIC argue at one point that state regulators approved the commission rates, see Patel Appellees' Br. at 10, but they cite no facts or record evidence in support of this contention. Their only authority is a Florida circuit court decision under the Florida Public Records Act that is at best tangentially related because it merely mentions ASIC's Florida rate filings. See Am. Sec. Ins. Co. v. Fla. Office of Ins. Reg. ,
Affirmative defenses are not established by silence, especially at the motion to dismiss stage. We cannot and should not assume that the filed rate doctrine bars the homeowners' complaints without proof that such filed rates exist.
D
Applying the federal filed rate doctrine here also conflicts with the goals that underpin it. If the homeowners' claims are true, ASIC has discounted its customers' insurance costs through a kickback scheme, and has failed to charge the filed rates or treat the lenders equally with other customers in the market.
The filed rate doctrine avoids unreasonable price discrimination by "foreclosing the possibility that carriers maintain one rate on file while either negotiating another (secret) lower rate with some shippers or providing those shippers with illegal rebates or discounts." In re Olympia Holding Corp. ,
This is why the Sixth and Third Circuits have concluded that the filed rate doctrine does not apply to challenges against agreements for which there are no filed rates. The Sixth Circuit, for example, allowed the plaintiffs' "challenge [because it] d[id] not concern the particular rate set by the [state regulator], but rather [involved] payments made outside of the rate scheme." Williams v. Duke Energy Int'l, Inc. ,
The majority argues that Alston is inapposite because the claims there arose under the Real Estate Settlement Procedures Act of 1974,
The majority says that we should instead look to the Second Circuit's example in Rothstein . In that case, the Second Circuit faced similar claims against an insurer and its customers (lenders) for arranging a kickback scheme that charged homeowners for more than the actual cost of hazard insurance. See Rothstein ,
First, the Second Circuit abdicated its duty to consider whether a challenged arrangement between an insurer and its customer is covered by a filed rate. It chose not to follow our precedent in Florida Municipal because, although the plaintiffs' claims concerned several separate transactions between separate parties, "there [wa]s a single (regulated) product."
Second, the Second Circuit doubled down on its error by claiming that once a regulator has "investigated" a similar complaint and "adopted a regulation restricting the practice," then "judicial endorsement of [the] [p]laintiffs' claims would displace and distort" the regulation *1340of that practice. Rothstein ,
As the majority correctly notes, the homeowners' claims in Rothstein were solely against the insurer (the lender had settled out of the case). See Maj. Op. at 1327 n.8; Rothstein ,
Here, as in Williams and Alston , the challenges are to kickbacks or agreements other than the regulated transaction. Barring the homeowners' claims effectively immunizes all entities in the insurance market, and allows insurers to engage in side schemes that reduce rates for preferred customers-in violation of the principle that created the filed rate doctrine in the first place.
III
The majority's third and final misstep is the unwarranted extension of the filed rate doctrine to bar claims against the lenders as if they were regulated entities like ASIC. Even assuming that the filed rate doctrine applies in Pennsylvania and Florida in its federal form, and assuming that the defendants have successfully shown that a governing rate has been filed with a state regulator, the filed rate doctrine precludes claims only against regulated sellers-not downstream entities or resellers. The majority's holding, which sweeps in any entity that touches a regulated rate, is at odds with the federal filed rate doctrine.
Let us assume, as the lenders contend, that the homeowners complain merely that they are demanding reimbursement for insurance premiums that are unreasonably high. Even so, the homeowners' claims against the lenders should survive under the filed rate precedent that the majority cites. Why? Because the claims asserted are not against a regulated seller.
Pennsylvania and Florida regulate insurers through the Pennsylvania Insurance Commissioner and the Florida Office of Insurance Regulation. ASIC is the insurance company that filed rates for the relevant insurance product with these state agencies. None of the lenders did so, nor were they required to. The lenders simply bought the regulated insurance, supposedly at the filed rate, from ASIC. That transaction is the only sale regulated by the state agencies. Or, to look at it another way, none of the lenders have *1341asserted that they filed a rate or that the relevant state agencies regulated their "resale" of insurance to the homeowners.
Allowing the homeowners' claims to go forward conforms with what have been called the "[t]wo rationales underl[ying] the [filed rate] doctrine"-"nonjusticiability" and "nondiscrimination." Maj. Op. at 1321. Here's why.
The nonjusticiability principle decrees that courts should not be rate-setters, which happens when a plaintiff asks a court to remedy an unreasonably high rate. But that could not happen here. Some of the homeowners' claims are against the lenders, not the regulated seller (ASIC). So any remedy obtained against the lenders for these claims would not require the homeowners to pay a different price-a court could never order the regulated seller (ASIC) to sell the regulated product (hazard insurance) to lenders at a different price. Thus, the nonjusticiability principle is not implicated here. See Hill ,
The same is true for the "nondiscrimination" principle, which forbids plaintiffs from suing to get lower rates than other customers. See
Significantly, the homeowners' costs are contractually tied to what the lenders actually paid for insurance. Although at first glance it might appear that the homeowners want to pay less for insurance than other customers on the market, in reality they only seek what their contract requires. Their claims, if true, might reveal that their lenders paid less than any other customers in the market due to an unlawful kickback scheme, but that is immaterial to the alleged breach at issue. The majority's extension of the filed rate doctrine permits unregulated lenders to immunize themselves by structuring their contracts to follow the filed rate.
In response, the majority reasons that "the filed-rate doctrine's applicability does not turn on whether the plaintiff is a rate-payer ." Maj. Op. at 1322 (emphasis added). Maybe so, but the majority never actually justifies expanding the filed rate doctrine to bar a suit where the defendant is not a rate filer . It cites no Pennsylvania or Florida *1342statute or regulation that governs regulated insurance products after ASIC sells it. Nor does it point to any court that has extended the filed rate doctrine to unregulated entities.
There are some decisions that have assumed or concluded that the filed rate doctrine could apply to a regulated buyer who resells a regulated product. Typically, however, the reason seems to be that no one contested the matter. See, e.g. , Alston ,
The majority's hands are just as empty. The majority extends Rothstein -which, it admits, "dealt with claims against the insurer"-and argues that because the "underlying theory" is the same, Rothstein is persuasive. Maj. Op. at 1327 n.8. It points to no case that justifies its expansive view of the filed rate doctrine.
If the majority seeks a model for how to address claims against unregulated sellers of regulated products, it should look no further than Smith v. SBC Communications, Inc. ,
The analysis in Smith makes sense. The majority's contrary rule will allow unregulated entities to piggyback off the strict protections provided to regulated entities in exchange for their engagement with the regulatory scheme.
V
Whether some version of the filed rate doctrine applies in these cases is a matter of Pennsylvania and Florida law. We cannot assume, in the absence of state authority, that the filed rate doctrine applies in its federal form whenever an entity files rates with state agencies. Given the lack of state precedent on the issue, I would certify questions about the filed rate doctrine and its scope to the supreme courts of Pennsylvania and Florida.
Even if the federal filed rate doctrine exists in Pennsylvania and Florida, it does not and should not apply to unregulated transactions-like kickbacks-that do not involve a filed rate. And it should not be extended to lenders who do not file insurance rates with a state agency.
With respect, I dissent.
A district court in the Eastern District of Pennsylvania decided, three months before Alston , that the filed rate doctrine barred federal antitrust claims against an insurer who filed rates with the relevant Pennsylvania agency. See In re Penn. Title Ins. Antitrust Litig.
The specific language in the mortgage contracts is:
5. Property Insurance ....
If Borrower fails to maintain any of the [hazard insurance] coverages described above, Lender may obtain insurance coverage , at Lender's option and Borrower's expense .... Borrower acknowledges that the cost of the insurance coverage so obtained might significantly exceed the cost of insurance that Borrower could have obtained. Any amounts disbursed by Lender under this Section 5 shall become additional debt of Borrower secured by this Security Instrument. These amounts shall bear interest at the Note rate from the date of disbursement and shall be payable, with such interest, upon notice from Lender to Borrower requesting payment.
Fowler Complaint ¶ 48 (emphasis added). See also id. ¶¶ 64, 77; Patel Complaint ¶¶ 49, 62.
As a policy matter, I am not sure that is a good idea. Cf. Hill v. BellSouth Telecomms., Inc. ,
Opinion of the Court
When an individual takes out a mortgage, he or she secures the loan with real property. To protect its security interest, lenders usually require borrowers to maintain *1317hazard insurance in an amount that is at least equal to the loan's unpaid principal balance. Should a borrower fail to obtain or maintain adequate coverage, the mortgage may authorize the lender to purchase insurance for the property and to charge the borrower for the cost of coverage. Such coverage is known as "force-placed insurance" ("FPI") or "lender-placed insurance." Typically, the task of monitoring borrowers' insurance coverage-and force-placing it when necessary-is farmed out to a loan servicer.
The plaintiffs in these consolidated cases are borrowers who allege that their mortgage servicers, Specialized Loan Servicing, LLC ("SLS") and Caliber Home Loans, Inc. ("Caliber"),
Additionally, because the plaintiffs claim that SLS and Caliber colluded with ASIC to disguise the alleged overcharges as legitimate expenses, they also accuse SLS and Caliber of violating the Federal Truth in Lending Act,
Complicating this otherwise run-of-the-mill contract dispute is the fact that ASIC's FPI rates have been filed with, and approved by, state regulators in the relevant jurisdictions.
Because we conclude that the plaintiffs, in their complaints, challenge a rate filed with regulators, we hold that the filed-rate doctrine applies. We accordingly affirm the district courts' dismissals of the cases under Federal Rule of Civil Procedure 12(b)(6) for failure to state a claim.
I
A
In June 2005, Pankaj Patel, a Florida citizen, signed a mortgage agreement with nonparty IndyMac Bank, which required him to maintain hazard insurance on the subject property for the life of the loan. In pertinent part, the agreement stated:
5. Property Insurance . Borrower shall keep the improvements now existing or *1318hereafter erected on the Property insured against loss by fire, hazards included within the term "extended coverage," and any other hazards including, but not limited to, earthquakes and floods, for which Lender requires insurance. This insurance shall be maintained in the amounts (including deductible levels) and for the periods that Lender requires. ...
If Borrower fails to maintain any of the coverages described above, Lender may obtain insurance coverage, at Lender's option and Borrower's expense. Lender is under no obligation to purchase any particular type or amount of coverage. Therefore, such coverage shall cover Lender, but might or might not protect Borrower, Borrower's equity in the Property, or the contents of the Property, against any risk, hazard[,] or liability and might provide greater or lesser coverage than was previously in effect. Borrower acknowledges that the cost of the insurance coverage so obtained might significantly exceed the cost of insurance that Borrower could have obtained. Any amounts disbursed by Lender under this Section 5 shall become additional debt of Borrower secured by this Security Instrument. These amounts shall bear interest at the Note rate from the date of disbursement and shall be payable, with such interest, upon notice from Lender to Borrower requesting payment.
...
9. Protection of Lender's Interest in the Property and Rights Under this Security Instrument . If (a) Borrower fails to perform the covenants and agreements contained in this Security Instrument, (b) there is a legal proceeding that might significantly affect Lender's interest in the Property and/or rights under this Security Instrument (such as a proceeding in bankruptcy, probate, for condemnation or forfeiture...), or (c) Borrower has abandoned the Property, then Lender may do and pay for whatever is reasonable or appropriate to protect Lender's interest in the Property and rights under this Security Instrument, including protecting and/or assessing the value of the Property, and securing and/or repairing the Property.
Patel Compl., Exhibit A, at 5-7.
In June 2014, Patel's voluntary coverage lapsed. Shortly thereafter, ASIC-with whom SLS had subcontracted to monitor its loan portfolio-sent Patel a letter informing him that if proof of coverage was not provided, SLS would purchase insurance on his behalf. The notice advised Patel of his right to obtain coverage from an insurance agent or company of his choice, "urge[d] [him] to do so," informed him that insurance bought by SLS was "likely" to have a "much higher" cost and to provide less coverage than what he could obtain on his own, and stated that "[t]he insurance we obtain may provide benefits to you but is primarily for the benefit of SLS."
One month later, SLS sent Patel a second notice, stating that it still had not received evidence of insurance. This letter included an insurance binder that disclosed the annual premium of the policy that SLS would purchase if it did not receive proof of coverage. On August 22, 2014, after Patel had yet again failed to provide proof of the contractually-required insurance, ASIC issued a one-year FPI certificate for the property, effective from June 2014. The policy "authorized [SLS] to advance all funds to be recovered from the borrower for the insurance afforded[.]" ASIC Motion to Dismiss, Exhibit 3, at 12 (No. 0:15-cv-62600-JIC). On June 5, 2015, Patel obtained voluntary coverage.
Patel's experience is representative of that of the remaining plaintiffs. Wilson, Fowler, and Yambo-Gonzalez are Florida citizens whose mortgage contracts contained provisions that were identical to those quoted above, while Keller, a Pennsylvania citizen, signed a mortgage contract containing materially similar provisions.
At the time that insurance was force-placed on the plaintiffs, ASIC was the exclusive provider of FPI for SLS and Caliber. As part of this arrangement, prior to any lapse in the plaintiffs' hazard insurance, ASIC had already issued a master insurance policy to each servicer that covered the entirety of its mortgage-loan portfolio. In exchange, ASIC performed many of SLS's and Caliber's loan-servicing functions. Most notably, ASIC and its affiliates monitored SLS's and Caliber's loan portfolio for lapses in borrowers' insurance coverage, and once a lapse was identified, ASIC sent the borrower a notice-on either SLS's or Caliber's behalf-informing him or her that insurance would be force-placed if voluntary coverage was not obtained. If the lapse continued, ASIC then issued an insurance certificate, at the borrower's expense, based on the already-existing master policy.
Once coverage was issued, two further transactions occurred. First, the servicer paid ASIC for the insurance certificate, for which it then billed the borrower. Second, ASIC paid the servicers, or their affiliates, either a fee related to the placement of the coverage or premiums for the servicers' reinsurance of the FPI policy.
On December 10, 2015, Patel and Wilson filed a class-action complaint against SLS and ASIC, alleging that in exchange for an exclusivity agreement, ASIC provided "kickbacks" to SLS in the form of "illusory reinsurance that carrie[d] no commensurate transfer of risk[,]" below-cost mortgage services that were unrelated to FPI, " 'expense reimbursements' allegedly paid ... for expenses ... incurred in the placement of FPI coverage notwithstanding the fact that the coverage is automatically issued pursuant to a master policy already in place[,]" and "unearned 'commissions' ... for work purportedly performed to procure individual policies when no work [was] actually performed[.]" Patel Compl. ¶ 5. In their complaint, the two also asserted that "[b]orrowers ultimately bear the cost of these kickbacks [because] SLS and ASIC bundle the costs into the amounts charged for insurance coverage ..., disguising the charges as legitimate by characterizing them as income earned by SLS when, in fact, they are unearned[,] unlawful profits." Ibid.
The same day, Fowler, Yambo-Gonzalez, and Keller filed a separate class-action complaint against Caliber and ASIC. The complaint's allegations are nearly identical to those in the complaint of Patel and Wilson: that in exchange for an exclusivity agreement, ASIC provided "kickbacks" to Caliber in the form of "unearned 'commissions' ... for work purportedly performed to procure individual policies[,]" " 'expense reimbursements' allegedly paid to reimburse Caliber for expenses it incurred in the placement of the force-placed insurance coverage[,]" "payments of illusory reinsurance premiums that carr[ied] no commensurate transfer of risk[,]" and "free or below-cost" mortgage services; and that the "[d]efendants attempt[ed] to disguise the kickbacks as legitimate by characterizing them as income earned by Caliber when, in fact, they [were] unearned, unlawful profits." Fowler Compl. ¶ 3.
In each case, the defendants moved to dismiss the complaint on the grounds that the plaintiffs' claims were barred by the filed-rate doctrine or, in the alternative, that each claim suffered from at least one independent defect. On April 25, 2016, citing the filed-rate doctrine, the district court dismissed Patel's and Wilson's complaint *1321with prejudice pursuant to Rule 12(b)(6). Patel v. Specialized Loan Servicing, LLC ,
Both sets of plaintiffs filed timely appeals. Citing the cases' similarities-namely, that they were filed on the same day in the same court by the same counsel, have a common co-defendant, and involve nearly identical claims, defenses, and issues-ASIC and SLS filed a Motion to Consolidate Appeals for Oral Argument. On December 19, 2016, we granted that motion.
II
We review de novo a district court's grant of a motion to dismiss for failure to state a claim. Allen v. USAA Cas. Ins. Co.,
To survive a Rule 12(b)(6) motion to dismiss, a complaint need not provide detailed factual allegations. Twombly ,
III
A
The filed-rate doctrine "forbids a regulated entity [from] charg[ing] rates for its services other than those properly filed with the appropriate ... regulatory authority." Hill ,
Two rationales underlie the doctrine. The first, which is known as the "nondiscrimination principle," is that all rate-payers should be charged the same rate for the regulated entity's service. See Hill ,
The filed-rate doctrine therefore precludes two types of suits. First, and most obviously, direct challenges to a filed rate are barred because, if successful, they necessarily violate the nonjusticiability principle. See Hill ,
An important, though heretofore overlooked, corollary of the nondiscrimination and nonjusticiability principles is that the filed-rate doctrine's applicability does not turn on whether the plaintiff is a rate-payer. On the one hand, because the nonjusticiability principle does not rest on the plaintiff's identity-it bars any suit that would challenge the rate-making authority of the appropriate regulatory body-it can preclude causes of action brought by non-rate-payers. Even non-customers, for instance, cannot directly challenge a filed rate. On the other hand, even when the plaintiff is a rate-payer, the nonjusticiability and nondiscrimination principles are not always implicated. Were a rate-payer to challenge a regulated entity's practice of giving other, favored rate-payers a rebate, such a challenge would not necessarily involve the courts in rate-making; nor would it necessarily grant a subgroup of customers a discount on their rate . See, e.g. , Williams v. Duke Energy Int'l, Inc. ,
This observation disposes of two points of confusion that attend challenges to FPI practices such as those present here, i.e., where an intermediary passes the cost of regulator-approved rates on to a third party. First, it demonstrates that we need not debate whether the FPI transaction consists of two, separate transactions-first, between the insurers and servicers and, second, between the servicers and the borrowers-or a single "A-to-B-to-C" transaction, where the servicers are merely a conduit between the insurers and the borrowers. Such a distinction matters only if the filed-rate doctrine's applicability turns on a plaintiff's status as a rate-payer.
*1323Second, it shows that the size of the alleged "kickback" is irrelevant to the issue before us. Even were an insurer to return 100 percent of the approved premium to the servicer, the question would remain whether such a payment was a component of the rate filed with regulators. If so, the nonjusticiability doctrine precludes the cause of action. At best, then, the size of a "kickback" can only provide circumstantial evidence that the payment was not a component of the filed rate.
Also overlooked is the fact that while the nondiscrimination principle is a rationale for the filed-rate doctrine, it does not determine the doctrine's applicability. If the plaintiff is not a rate-payer, then an award of damages cannot effectively change the rate paid by a subset of rate-payers. As such, because the nondiscrimination principle cannot be implicated, the nonjusticiability principle alone determines whether the filed-rate doctrine applies to such cases. At the same time, the nondiscrimination principle does not bar all suits that would lead to an award of damages to a rate-payer. A utility customer, for instance, is not barred from suing for damages done to his property by the utility company's employees. Thus, for the nondiscrimination principle to apply, the cause of action must have a connection with the rate of service. However, when that occurs, the nonjusticiability principle is also necessarily implicated. Thus, whenever the nondiscrimination principle is violated, so is the nonjusticiability principle.
A simple framework therefore emerges for determining whether the filed-rate doctrine bars a cause of action. First, we must examine whether the complaint facially attacks a filed rate. Here, this amounts to a determination of whether the plaintiffs worded their complaints as a challenge to ASIC's rate for force-placed insurance. If they did, then their causes of action are barred. Second, if the complaint does not facially attack a filed rate, we must ask whether it implicates the nonjusticiability principle by challenging the components of a filed rate. Stated differently, we must determine whether the cause of action effectively contests the inclusion of certain charges in (or the omission of certain discounts from) a rate filed with the appropriate administrative agency. In this case, this requires us to investigate whether ASIC's FPI rates include an allowance for commissions and similar costs. Only if the answer to both inquiries is "no" is the filed-rate doctrine inapplicable.
B
Before proceeding to that inquiry, however, we pause to address the dissent's claim that we should not apply the filed-rate doctrine. Despite some suggestions to the contrary, see Dissent at 1327-28 ("The majority ... now confidently decrees that the federal filed rate doctrine is the governing rule [in Florida and Pennsylvania]"), the dissent could not mean that the filed-rate doctrine is a federal doctrine that only applies to rates approved by federal regulatory agencies. Such a view has already been rejected et dixit magna voce by a unanimous en banc panel of this court. See Taffet ,
Fair enough. For that reason, we now largely reproduce the reasoning that the district court offered in Fowler ,
In Taffet , we concluded that the filed-rate doctrine existed as to those state regulatory schemes due, in large part, to the legislatures' having established "elaborate administrative schemes to ensure that rates for electricity are just and reasonable for the affected utilities and for the public."
Florida has enacted a similar regime with respect to insurance rates. Pursuant to
*1325
Finally, as with Alabama's utility rate-making regime, in Florida, upon written complaint and after petitioning the insurer, "[a ]ny person aggrieved by any rate charged, rating plan, [or] rating system ... followed or adopted by an insurer" may request OIR review.
While such data points may not allow us to say with certainty that the appellate courts of Florida will hold that the filed-rate doctrine exists as to the regulatory scheme in question, they are enough to make an educated guess, which is all that Erie requires. And for similar reasons, we can make an educated guess regarding the determination of the appellate courts of Pennsylvania. See 40 Pa. Stat. Ann. § 710-6(a) ("Every insurer making a filing with the commissioner ... shall file every manual of classifications, rules and rates, every rating plan and every modification of a manual of classifications, rules and rates and a rating plan which it proposes to use[.]" (emphasis added) ); see also
C
Although the plaintiffs assert on appeal that they are not challenging the reasonableness of ASIC's rates, the complaints belie this claim. As such, their causes of action fail at the first stage of the analysis. The most obvious basis for this conclusion is the fact that the plaintiffs *1326repeatedly state that they are challenging ASIC's premiums. In a section of the complaints titled "The Force-Placed Insurance Scheme," they characterize the servicers as being "incentivized to purchase and force place insurance coverage with artificially inflated premiums [.]" Patel Compl. ¶ 36 (emphasis added); Fowler Compl. ¶ 35 (emphasis added); see also Patel Compl. ¶¶ 98(b), 111; Fowler Compl. ¶ 111(b). Elsewhere, they describe themselves as "suffer[ing] damages in the form of unreasonably high force-placed insurance premiums [.]" Patel Compl. ¶ 156 (emphasis added); Fowler Compl. ¶ 169 (emphasis added); see also Patel Compl. ¶¶ 150, 162. Finally, the plaintiffs make clear that they are objecting to ASIC's-not just SLS's-practice of "bundl[ing] the cost [of "kickbacks"] into the amounts charged for insurance coverage." Patel Compl. ¶ 5; see also Patel Compl. ¶¶ 38, 120; Fowler Compl. ¶¶ 37, 115, 124, 125, 150, 166(l). The plain language of the complaints therefore shows that the plaintiffs are challenging the reasonableness of ASIC's premiums; and since these premiums are based upon rates filed with state regulators, plaintiffs are directly attacking those rates as being unreasonable as well.
That the plaintiffs are challenging ASIC's rates is further attested to by their allegation that the defendants have "manipulate[d] the force-placed insurance market" to "artificially inflate the amounts ... charge[d] to borrowers" for force-placed insurance. Patel Compl. ¶ 26; Fowler Compl. ¶ 25. Since ASIC is the provider in the FPI market, the charge of price manipulation necessarily attacks ASIC's premiums. Given, moreover, that the plaintiffs repeatedly use the language of market manipulation to characterize their causes of action, Patel Compl. ¶¶ 14, 47, 75(e), 98(a), 140; Fowler Compl. ¶¶ 12, 45, 89(e), 111(a), 153(i), we cannot avoid the conclusion that they are directly challenging the rates that ASIC has filed with state regulators.
Their complaints therefore contain textbook examples of the sort of claims that we have previously held are barred by the nonjusticiability principle. In Taffet , for instance, we held that utility customers in Alabama and Georgia could not sue utilities for damages measured as the difference between the filed rate and the rate that would have prevailed absent the providers' fraudulent behavior.
We reached the same conclusion in Hill , where a telecommunications customer sought monetary damages from a service provider for its billing practices, specifically, its representation of a given charge as a recoupment of a mandatory federal fee when, in fact, the charge exceeded the required fee.
Because the plaintiffs should be understood as meaning what they say, we find that they have challenged ASIC's filed rate. As such, there can be no doubt that *1327their causes of action are barred by the filed-rate doctrine.
IV
For the reasons noted above, this case triggers an application of the filed-rate doctrine. We therefore AFFIRM the district courts' grants of the defendants' motions to dismiss for failure to state a claim. We DENY the October 24, 2016 motion for judicial notice by defendants-appellees Specialized Loan Servicing LLC and American Security Insurance Company as moot.
Caliber was created in 2013 when Vericrest Financial and Caliber Funding merged operations. Although this lawsuit also challenges the FPI practices of Caliber Home Loan's predecessors, for ease of exposition, we will refer to their actions as those of Caliber.
The plaintiffs do not dispute that the FPI premiums charged to and paid by the plaintiffs were not more than the insurance rates filed with, and approved by, the relevant state regulators.
"Ordinarily, we do not consider anything beyond the face of the complaint and documents attached thereto when analyzing a motion to dismiss." Fin. Sec. Assur., Inc. v. Stephens, Inc. ,
For the same reason, we will consider the notices and FPI policies that Caliber sent to Fowler, Yambo-Gonzalez, and Keller.
Keller's mortgage stated:
5. Hazard Insurance. Borrower shall keep the improvements now existing or hereafter erected on the Property insured against loss by fire, hazards included within the term "extended coverage," and such other hazards as Lender may require.
...
7. Protection of Lender's Security. If Borrower fails to perform the covenants and agreements contained in this Mortgage, or if any action or proceeding is commenced which materially affects Lender's interest in the Property, then Lender, at Lender's option, upon notice to Borrower, may make such appearances, disburse such sums, including reasonable attorneys' fees, and take such action as is necessary to protect Lender's interest.
Any amounts disbursed by Lender pursuant to this paragraph 7, with interest thereon, at the contract rate, shall become additional indebtedness of Borrower secured by this Mortgage. Unless Borrower and Lender agree to other terms of payment, such amounts shall be payable upon notice from Lender to Borrower requesting payment thereof. Nothing contained in this paragraph 7 shall require Lender to incur any expense or take any action hereunder.
Caliber Motion to Dismiss, Exhibit (No. 1:15-cv-24542-JG).
Between 2009, when Yambo-Gonzalez's voluntary insurance first lapsed, and June 2014, the insurance certificates that she received did not contain this provision. Beginning in June 2014, however, they did.
In Rothstein , the Second Circuit gives an alternative reason to view "[t]he distinction between an 'A-to-B' transaction and an 'A-to-B-to-C' transaction [as being] especially immaterial in the [F]PI context[.]"
Because regulators are unlikely to approve a 100-percent "kickback," its presence would suggest that it was not a component of the filed rate. However, if it were a component of the filed rate, the proper recourse for plaintiffs would be through their state's or the federal regulatory structures. See, e.g. , Taffet ,
Even were we to proceed to the second stage of the examination, it is unlikely that we would reverse the district courts' grants of the defendants' motions to dismiss. To see why, it helps to briefly discuss Rothstein .
In Rothstein , the Second Circuit held that the filed-rate doctrine barred a suit by mortgagors who claimed that they had been "fraudulently overbilled [for FPI] because the rates they were charged did not reflect secret 'rebates' and 'kickbacks' that [the loan servicer] received from [the insurer] through [the insurer's] affiliate[.]"
The theory behind the claims is that Plaintiffs were overbilled when they were charged the full LPI rates (which were approved by regulators), instead of lower rates net of the value of loan tracking services provided by [the insurer's affiliate]. That theory can succeed only if the arrangement [between the loan servicer and the insurer's affiliate] should have been treated as part and parcel of the [F]PI transaction and reflected in the [F ]PI rates.
The Plaintiffs insist, however, that we should instead follow Alston v. Countrywide Fin. Corp. ,
It is far from certain, however, that this is what Alston actually held. While it is true that the Third Circuit stated that it is "absolutely clear that the filed rate doctrine simply does not apply here[,]" immediately preceding that statement, it said, "[i]t goes without saying that if we were to find that the filed rate doctrine bars plaintiffs' claims, we would effectively be excluding PMI from the reach of RESPA, a result plainly unintended by Congress ."
Reference
- Full Case Name
- Pankaj PATEL, Laketha Wilson, Plaintiffs - Appellants, v. SPECIALIZED LOAN SERVICING, LLC, American Security Insurance Company, Defendants - Appellees. Richard L. Fowler, Glenda Keller, Yvonne Yambo-Gonzalez, on Behalf of Themselves and All Others Similarly Situated, Plaintiffs - Appellants, v. Caliber Home Loans, Inc., Individually and as Successor-In-Interest to Vericrest Financial and Caliber Funding, American Security Insurance Company, Defendants - Appellees.
- Cited By
- 108 cases
- Status
- Published