In 2008, payday lenders suffered a major defeat when the Ohio legislature banned high-cost loans. That same year, they lost again when they dumped more than $20 million into an effort to roll back the law: The public voted against it by nearly two-to-one.
But five years later, hundreds of payday loan stores still operate in Ohio, charging annual rates that can approach 700 percent.
It's just one example of the industry's resilience. In state after state where lenders have confronted unwanted regulation, they have found ways to continue to deliver high-cost loans.
Sometimes, as in Ohio, lenders have exploited loopholes in the law. But more often, they have reacted to laws targeted at one type of high-cost loan by churning out other products that feature triple-digit annual rates.
To be sure, there are states that have successfully banned high-cost lenders. Today Arkansas is an island, surrounded by six other states where ads scream "Cash!" and high-cost lenders dot the strip malls. Arkansas' constitution caps non-bank rates at 17 percent.
But even there, the industry managed to operate for nearly a decade until the state Supreme Court finally declared those loans usurious in 2008.
The state-by-state skirmishes are crucial, because high-cost lenders operate primarily under state law. On the federal level, the recently formed Consumer Financial Protection Bureau can address "unfair, deceptive or abusive practices," said a spokeswoman. But the agency is prohibited from capping interest rates.
In Ohio, the lenders continue to offer payday loans via loopholes in laws written to regulate far different companies — mortgage lenders and credit repair organizations. The latter peddle their services to people struggling with debt, but they can charge unrestricted fees for helping consumers obtain new loans into which borrowers can consolidate their debt.
Today, Ohio lenders often charge even higher annual rates (for example, nearly 700 percent for a two-week loan) than they did before the reforms, according to a report by the nonprofit Policy Matters Ohio. In addition, other breeds of high-cost lending, such as auto-title loans, have recently moved into the state for the first time.
Earlier this year, the Ohio Supreme Court agreed to hear a case challenging the use of the mortgage law by a payday lender named Cashland. But even if the court rules the tactic illegal, the companies might simply find a new loophole. In its recent annual report, Cash America, the parent company of Cashland, addressed the consequences of losing the case: "if the Company is unable to continue making short-term loans under this law, it will have to alter its short-term loan product in Ohio."
Amy Cantu, a spokeswoman for the Community Financial Services Association, the trade group representing the major payday lenders, said members are "regulated and licensed in every state where they conduct business and have worked with state regulators for more than two decades."
"Second generation" products
When unrestrained by regulation, the typical two-week payday loan can be immensely profitable for lenders. The key to that profitability is for borrowers to take out loans over and over. When the CFPB studied a sample of payday loans earlier this year, it found that three-quarters of loan fees came from borrowers who had more than 10 payday loans in a 12-month period.
But because that type of loan has come under intense scrutiny, many lenders have developed what payday lender EZCorp chief executive Paul Rothamel calls "second generation" products. In early 2011, the traditional two-week payday loan accounted for about 90 percent of the company's loan balance, he said in a recent call with analysts. By 2013, it had dropped below 50 percent. Eventually, he said, it would likely drop to 25 percent.
But like payday loans, which have annual rates typically ranging from 300 to 700 percent, the new products come at an extremely high cost. Cash America, for example, offers a "line of credit" in at least four states that works like a credit card — but with a 299 percent annual percentage rate. A number of payday lenders have embraced auto-title loans, which are secured by the borrower's car and typically carry annual rates around 300 percent.
The most popular alternative to payday loans, however, are "longer term, but still very high-cost, installment loans," said Tom Feltner, director of financial services at the Consumer Federation of America.
Last year, Delaware passed a major payday lending reform bill. For consumer advocates, it was the culmination of over a decade of effort and a badly needed measure to protect vulnerable borrowers. The bill limited the number of payday loans borrowers can take out each year to five.
"It was probably the best we could get here," said Rashmi Rangan, executive director of the nonprofit Delaware Community Reinvestment Action Council.
But Cash America declared in its annual statement this year that the bill "only affects the Company's short-term loan product in Delaware (and does not affect its installment loan product in that state)." The company currently offers a seven-month installment loan there at an annual rate of 398 percent.
Lenders can adapt their products with surprising alacrity. In Texas, where regulation is lax, lenders make more than eight times as many payday loans as installment loans, according to the most recent state data. Contrast that with Illinois, where the legislature passed a bill in 2005 that imposed a number of restraints on payday loans. By 2012, triple-digit-rate installment loans in the state outnumbered payday loans almost three to one.
In New Mexico, a 2007 law triggered the same rapid shift. QC Holdings' payday loan stores dot that state, but just a year after the law, the president of the company told analysts that installment loans had "taken the place of payday loans" in that state.
New Mexico's attorney general cracked down, filing suits against two lenders, charging in court documents that their long-term products were "unconscionable." One loan from Cash Loans Now in early 2008 carried an annual percentage rate of 1,147 percent; after borrowing $50, the customer owed nearly $600 in total payments to be paid over the course of a year. FastBucks charged a 650 percent annual rate over two years for a $500 loan.
The products reflect a basic fact: Many low-income borrowers are desperate enough to accept any terms. In a recent Pew Charitable Trusts survey, 37 percent of payday loan borrowers responded that they'd pay any price for a loan.