Todd J. Zywicki *
The need for reform of the consumer bankruptcy law is evident.
Despite the low unemployment, steady economic growth, and general
prosperity of recent years, consumer bankruptcy filing rates continue
to soar, eclipsing 1.4 million filers last year, approximately 1%
of American households. Yet again, filings last year set an all-time
record. Filing rates jumped 29% from 1995 to 1996, and then jumped
again by 20% from 1996 to 1997, and now stand at a level more than
50% higher than the number in 1992, during the height of the last
recession. Of course, we all lose when some people file bankruptcy
rather than paying their bills, as those losses are passed on to
the rest of us in the form of higher downpayments, higher interest
rates, and more stringent late costs and fees.
Most bankruptcy debtors have two options when they file bankruptcy:
Chapter 7 "straight" or "liquidation" bankruptcy,
or a Chapter 13 repayment plan. Under Chapter 7, the debtor totals
up all of her assets on hand at the time of filing, subtracts out
all of her "exempt" property, and distributes this quotient
pro rata to all of her unsecured creditors at the time of bankruptcy.
Because of the generous nature of most exemption schemes and the
presence of secured claims against many of the debtor's most valuable
assets, 95% of Chapter 7 cases are "no asset" cases that
make no distribution at all to unsecured creditors, and those that
do are usually very small. Moreover, because many of these exemptions
apply to property such as houses and automobiles, middle class debtors
tend to benefit the most from them. Alternatively, the debtor can
elect Chapter 13, which obliges her to repay her creditors out of
her future "disposable income," which is essentially her
future income as adjusted for her living expenses. Last year 72%
of all personal bankruptcy filings were under Chapter 7. Given the
low repayment rate in Chapter 7, many debtors would repay significantly
more of their debts if they instead proceeded under Chapter 13,
with the greatest impact coming from middle class and upper-middle
class filers who now simply walk away from their debts.
In response to this, last summer Congress drafted a bankruptcy
reform bill aimed at forcing upper-middle class debtors who can
repay a substantial portion of their debts with minimal hardship
to do so. The general thrust of reform efforts is to implement a
formalized regime of "means-testing." As passed by the
House, means-testing would require a bankruptcy filer to elect Chapter
13 instead of Chapter 7 if her annual income was above the national
median income (adjusted for family size), could repay 20% or more
of her debts over a five year period, could pay at least $50 per
month into a plan, and had no significant hardship. Under the Senate
version, the effect of means-testing would be discretionary rather
than mandatory; if the debtor qualified under the mean-testing requirement,
this would give the court grounds to dismiss the petition for "abuse"
under Section 707(b) of the Bankruptcy Code, but this action would
not be required.
A conference version of the bill opted for a weak version of means-testing
that would have given a bankruptcy judge discretion to transfer
a debtor from Chapter 7 to Chapter 13 on motion of a creditor and
where the debtor earns more than the national median income and
can afford to repay either $5,000 or 25% of debts over five years.
Even this modest form of means-testing was still too much for the
White House, which threatened to veto the bill. In the end bankruptcy
reform floundered last session, but a new bill based on the conference
bill has already been introduced this session.
Several recent empirical studies suggest that there exists a relatively
small but readily-identifiable group of upper-income bankruptcy
filers who meet the means-testing criteria. For a family of four,
the national median income is approximately $51,000; thus, means-testing
wouldn't even be relevant until a filer passes that threshold. Two
studies by Ernst & Young and one by the Credit Research Center
at the Georgetown School of Business suggest that roughly 10% of
bankruptcy filers meet the "means-testing" criteria. Although
the total numbers of people affected are relatively small, however,
the impact of these provisions is dramatic. The same studies indicate
that those affected by means-testing would have had the ability
to repay over 60% of their unsecured nonpriority debts, or approximately
$9 billion worth of the debt at stake in Chapter 7 cases. In sum,
there is a relatively small, but well-defined group of upper-income
debtors who could repay a substantial portion of their debts with
minimal hardship.
Reasoned critics of means-testing have launched two lines of attack
at the concept of means-testing: first, that it rests on invalid
assumptions about the probable financial benefits of means-testing;
and second, that even if it would increase the amounts collected
through the bankruptcy process, it would do so only at the cost
of significantly higher administrative costs that would offset any
gains in collections. Both of these arguments are incorrect.
A much-publicized recent study sponsored by the American Bankruptcy
Institute ("ABI") purports to demonstrate that the effects
of means-testing would be significantly less than that identified
above, and that only three percent of personal bankruptcy filers
would be subjected to means-testing. Congressman Jerrold Nadler
even alluded to this study in his press release announcing opposition
to bankruptcy reform. Such heavy reliance on this single study of
approximately 1,050 petitions selected from 7 districts is puzzling.
First, given that 1.4 million consumers filed for bankruptcy last
year (72% of whom filed Chapter 7), even three percent of the population
is a large number. Second, it is peculiar that such a small and
non-representative study of only 1,050 petitions from 7 districts
would be given so much weight when compared to the more extensive,
recent, and scientifically-controlled studies conducted by Ernst
& Young, the Credit Research Center, and others. Critics of
these studies have demagogued them as having been sponsored by the
credit industry, but other than this "guilt by association"
rhetoric, they have not identified any significant methodological
flaws that undermine confidence in the results. The ABI study makes
the peculiar assumption that the relevant law and regulations actually
permit a debtor in bankruptcy to incur new debt of up to $20,000
to buy a new car. Unsurprisingly, this assumption is incorrect.
The relevant regulations and law permit a debtor to pay off old
automobile debt, but they do not permit a bankruptcy debtor to actually
go out and buy a new car while in bankruptcy. Merely correcting
this erroneous assumption doubles the number of people affected
by means-testing to 6-7%, a number largely consistent with earlier
studies.
Finally, there are significant non-economic benefits that accompany
means-testing and which are not recognized in these numbers. A free
economy and healthy civil society rest on the foundation of promise-keeping
and reciprocity. We teach our children at a very young age to keep
promises and to be cooperative and to reciprocate good deeds. Widespread
consumer bankruptcy represents a repudiation of these moral concepts
of promise-keeping and reciprocity, by rewarding those who purchase
goods and services on credit and then walk away when the bill comes
due. Thus, bankruptcy is a moral as well as an economic act. Telling
upper-income debtors who can repay a substantial portion of their
debt without significant hardship that they must do so sends an
important moral signal that bankruptcy is a serious moral decision
and should not be entered into lightly.
Those who argue that means-testing would result in an increase
in administrative costs have failed to recognize that there are
already substantial costs associated with the current regime in
policing bankruptcy abuse by high-income debtors. Under Section
701(b), courts have the discretion to dismiss a debtor's Chapter
7 petition if it would otherwise constitute "substantial abuse."
Most courts have applied this test under the rubric of a multifactor
balancing test, of which the debtor's ability to repay her debts
is the predominant factor, but must be considered in conjunction
with several other factors. The results of this regime have been
problematic.
The ambiguity and open-ended nature of this standard has led to
wide disparities from judge to judge and case to case in what constitutes
"substantial abuse." There is little predictability in
the legal standard, as caselaw has provided no determinate answer
as to how much a debtor must be able to pay before a finding of
"substantial abuse" would be triggered and there is further
no determinate answer as to how this factor should be weighed against
the other factors in any given case. As a result, similarly situated
debtors may face radically different results depending on the court,
judge, or day in which they happen to appear. This regime of high
legal uncertainty has led to unpredictable results in both real
and perceived unfairness in the administration of the bankruptcy
system. Moreover, the lack of a coherent rule has led to unnecessary
and wasteful litigation as parties attempt to determine whether
the court will find "substantial abuse" in any given case.
By contrast, statutory means-testing will establish a rule of decision
that will substantially reduce the uncertainty associated with the
current system. It recognizes that the courts already have identified
the ability to pay as the primary factor to consider and channels
the court's consideration of other factors in a more predictable
manner, so as to minimize uncertainty and unfairness. By establishing
a bright-line rule, means-testing will reduce the administrative
costs associated with consumer bankruptcy. In 80% of cases the debtor
will not even pass the minimum income threshold; thus, those debtors
will not have to worry about means-testing at all. This compares
favorably to the current regime where any debtor in any case could
potentially be susceptible to a motion for dismissal for substantial
abuse. The other factors relating to ability to pay can be disposed
of through the development of a simple and inexpensive computer
program, a prototype of which has already been developed. One argument
in favor of the original House version of means-testing is that
it establishes a rigorous bright-line test; thus, it would save
more on administrative expenses than the more fuzzy and discretionary
Senate version of means-testing.
* Assistant Professor of Law, George Mason University School of
Law, and Co-Chair, Bankruptcy Subcommittee, Financial Institutions
Practice Group. This article is adapted from Edith H. Jones &
Todd J. Zywicki, It's Time for Means-Testing, 1999 BYU L. REV. __
( Forthcoming March 1999).
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