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FEDERAL RESERVE BANK OF NEW YORK Circular No. 10828 January 16, 1996 EQUAL CREDIT OPPORTUNITY Proposed Revisions to the Official Staff Commentary to Regulation B Comments Invited by February 28 To All Depository Institutions in the Second Federal Reserve District, and Others Concerned: Following is the text of a statement issued by the Board of Governors of the Federal Reserve System: The Federal Reserve Board has published for public comment proposed revisions to its Regulation B, Equal Credit Opportunity, staff commentary. Comment is requested by February 28,1996. The proposed revisions to the commentary provide guidance on credit scoring, spousal signature rules, and other issues. Specifically, the changes would address the use of age in credit scoring systems. The proposed revisions to the signature rules clarify that a creditor’s valuation of an applicant’s inter est in property must be based on the form of ownership prior to or at consummation; the options a cred itor may offer an applicant if an additional signature is required; and the fact that a creditor may require that the principals of a business guarantee business credit. Printed on the following pages is the text of the proposal, as published in the Federal Register. Comments thereon should be submitted by February 28, 1996, and may be sent to the Board, as indicated in the notice, or to our Compliance Examinations Department. W illiam J. M c D onough , President. Federal Register / Vol. 60, No. 249 / Thursday, December 28, 1995 / Proposed Rules b etw een 8:45 a.m. and 5:15 p.m . w eek d ays, or to th e guard station in the E ccles B u ild in g courtyard on 20th Street, N .W . (b etw een C onstitution A v en u e an d C Street) at any tim e. C om m ents receiv ed w ill be availab le for in sp e c tio n in R oom M P -5 0 0 o f the M artin B u ild in g b e tw e e n 9:00 a.m. and 5:00 p.m . w eek d a y s, e x c e p t as p rovid ed in 12 CFR 261.8 o f th e B oard’s rules regarding the av a ila b ility o f inform ation. FEDERAL RESERVE SYSTEM 12 CFR Part 202 [Regulation B; D ocket No. R-0910] Equal Credit Opportunity AGENCY: Board o f G overnors o f th e Federal R eserve System . ACTION: P roposed rule; o fficia l staff interpretation. SUMMARY: T he Board is p u b lish in g for com m ent prop osed r e v isio n s to its official staff com m en tary to R egu lation B (Equal Credit O pportunity). T he com m entary ap p lies and in terprets the requirem ents o f R egu lation B and substitutes for in d iv id u a l staff interpretations. T he p ro p o sed r ev isio n s to the com m entary p ro v id e g u id a n ce on issu es that the Board h as b e e n ask ed to clarify, in clu d in g credit sco rin g and spousal signature rules. DATES: C om m ents m u st be r eceiv ed on or before February 2 8 ,1 9 9 6 . ADDRESSES: C om m ents sh o u ld refer to Docket No. R -0 9 1 0 , an d m ay be m a iled to W illiam W. W iles, Secretary, Board o f Governors o f the Federal R eserve System , 20th Street an d C on stitu tion A venue, N .W ., W ash in gton , D.C. 205 5 1 . C om m ents also m ay be d eliv ered to Room B -2 2 2 2 o f the E ccles B u ild in g 67097 S ec tio n 2 0 2 .6 — R u les C on cern in g E v a lu a tio n o f A p p lic a tio n s 6(b) S p e c ific R ules C oncerning U se o f Inform ation 6(b)(2) C om m ent 6(b)(2)— w o u ld be revised 2 to ad d ress th e u se o f age in credit scorin g sy stem s that u se scorecards for different age groups b a sed on ch aracteristics that are p red ictive for each group. Each scorecard con sid ers FOR FURTHER INFORMATION CONTACT: Jane th e correlation am on g th e p redictive Jensen G ell, S h eila h A. G oodm an, or variab les (representing characteristics N atalie E. T aylor, Staff A ttorneys, su ch as in co m e, len gth o f resid en ce, and D iv isio n o f C on su m er and C om m unity cred it history) for th e age group. Each A ffairs, Board o f G overnors o f the p red ictiv e variable is a ssig n ed the Federal R eserve S y stem , at (202) 4 5 2 appropriate w eig h t g iv e n the im pact o f 3667 or 4 5 2 -2 4 1 2 . For u sers o f the th e other p red ictive variab les in that age T e leco m m u n ica tio n s D ev ice for the group, so that com p arab le scores for Deaf, con tact D orothea T h o m p so n at each group reflect th e sam e lev el o f risk. (202) 4 5 2 -3 5 4 4 . U nder the ECOA an d R egulation B, if a creditor co n sid ers age— w h eth er by SUPPLEMENTARY INFORMATION: d irectly a ssign in g a v a lu e to age or by I. B ack grou n d so m e other m ean s su ch as estab lish in g scorecard s for d ifferen t age groups— the T he Equal Credit O p p ortu n ity A ct age o f an eld erly a p p lica n t m u st not be (ECOA), 15 U.S.C. 1 6 9 1 — 1691f, m akes it u n la w fu l for creditors to d iscrim in a te in a ssig n ed a negative v a lu e. T he Board b e lie v e s that, to en su re that the any asp ect o f a cred it transaction on the treatm ent accorded a p p lica n ts age 62 or b asis o f race, color, relig io n , national o ld er c o m p lie s w ith th e law , eld erly origin, sex , m arital statu s, or age (p rovid ed the a p p lica n t h as th e cap acity a p p lica n ts w h o d o n o t q u alify for credit u n d er the factors a ssig n e d to the to contract), b eca u se a ll or part o f an scorecard for their age group m ust be a p p lica n t’s in co m e d e riv es from p u b lic rescored un d er th e factors assign ed to a ssista n ce, or b eca u se th e ap p lica n t has th e scorecards for a ll oth er age groups in g ood faith e x ercised any right under in th e system . C om m ent 6(b)(2)— 2 th e C onsum er Credit P rotection A ct. w o u ld b e revised to incorporate this T h is statute is im p le m e n te d by the co n cep t. B oard’s R egulation B (12 CFR Part 202). P rop osed com m en t 6(b)(2)— 4 T he Board a lso has an o fficia l staff a d d resses the u se o f age in a reverse com m entary (12 CFR Part 202 (Supp. I)) m ortgage transaction. A reverse that interprets the regu lation . T he m ortgage is a h om e-secu red loan in com m entary p ro v id es gen eral gu id an ce w h ic h th e borrower re c e iv es paym ents to creditors in a p p ly in g R egulation B to from th e creditor, and th e repaym ent o f various credit tran saction s, and is th ese am ou n ts d o es n ot b eco m e d ue u p d ated p e rio d ica lly to ad d ress u n til th e borrow er d ie s, m o v es sig n ifica n t q u estio n s that arise. p erm an en tly from th e h o m e, or transfers title to th e hom e. T h e p rop osed II. E xp la n a tio n o f P ro p o sed co m m en t clarifies that u sin g age, as a C om m entary proxy for life ex p ecta n cy , in a reverse S ectio n 2 0 2 .2 — D efin itio n s m ortgage transaction to d eterm in e the lin e o f credit or m o n th ly p aym en t 2(p) E m p irically D erived an d Other am ou n t that a borrow er w ill receive Credit S corin g S y stem s d o es n o t v io la te th e regulation. C om m ent 2 (p )-2 w o u ld b e revised to 6(b)(6) p rovid e g u id an ce o n revalid ation C om m ent 6 (b )(6 )-l w o u ld b e revised requirem ents for cred it scorin g system s. to clarify that if a cred itor con sid ers S ectio n 2 0 2 .5 — R u le s C on cern in g cred it h istory, it m u st c o n sid er T akin g o f A p p lic a tio n s inform ation p resen ted by the ap p lican t that is not in clu d ed in th e credit report, 5(e) W ritten A p p lic a tio n s i f it is the typ e the cred itor norm ally C om m ent 5 (e )-3 w o u ld be revised to co n sid ers on a credit report. T he cross-reference th e p ro p o sed com m en ts co m m en t also cla rifies that w h en one to sectio n 202.13(b ), w h ic h address sp o u se is a p p lyin g for in d iv id u a l credit, a p p lica tio n s su b m itted through an th e creditor m u st co n sid e r inform ation electro n ic m ed iu m . p resen ted by the a p p lica n t that w o u ld 6 7 098 Federal Register / VoL 60, No. 249 / Thursday, December 28, 1995 / Proposed Rules ten d to sh o w that a cred it h istory appearing in th e nam e o f both sp o u se s is n o t reflective o f th e a p p lica n t’s in d iv id u a l cred itw orth in ess. S ectio n 2 0 2 .7 —R u les C on cern in g E x ten sio n s o f C red it 7(d) Signature o f S p o u se or O ther. P erson 7(d)(2) P rop osed com m en t 7(d)(2)— clarifies 1 that in determ ining th e v a lu e o f an a p p lica n t’s interest in property, a creditor m ust look to th e actu al form o f o w n ersh ip o f the property prior to or at con su m m ation . R egulation B requires that if an ap p lica n t is not in d iv id u a lly cred itw orth y and th e creditor se ek s th e signature o f a co-ow n er o f property relied u p on to estab lish cred itw orth in ess, th e signature m ay be required o n ly on th e d o cu m en ts that are reasonably n ecessary, u n d er state law , to m ake the property availab le in th e ev e n t o f death or default o f th e ap p lican t. In som e states, a signature on th e debt instrum ent itse lf m ay be n ecessary. In other states, a cred itor m ay b e able to protect its interest w ith a signature on an in stru m en t that creates a lim ited obligation— a d o cu m en t a llo w in g the creditor to reach the n o n a p p lica n t sign atory’s in terest o n ly in th e property at issu e in th e e v en t o f default. E xam p les o f su c h in stru m en ts in c lu d e a security agreem ent, m ortgage, d eed o f trust, or lim ited guarantee. T he creditor c o u ld also co n sid e r req u estin g a signature on a d o cu m en t so m e tim e s referred to as a status statem en t. T h is d o cu m en t ascertains th e character o f property that w ill be u sed in th e cred it d ecisio n ; affirm s the p u rp ose o f th e loan (if a b u sin e ss purpose, affirm s or d isc la im s any interest or p articip ation in th e business); and attests to or d isc la im s the n o n -a p p lica n t’s d esire to b e an applicant or guarantor o f th e requested credit. T h e Board prop oses to revise co m m en t 7 (d )(2 )-l to clarify that w h ere an in d iv id u a l ap p lican t jo in tly o w n s property in a form and am ou n t su fficien t to estab lish cred itw o rth in ess, a creditor m ay not require th e n o n a p p lica n t joint o w n er o f the property to execu te any in stru m en t that forfeits or co n v e y s that p erso n ’s in terest in the property to the a p p lican t or other o w n ers as a co n d itio n o f credit. For ex a m p le, a creditor c o u ld not require a n on -ap p lican t sp o u se to q u itclaim their interest in jointly o w n ed property relied u p o n to establish cred itw o rth in ess if th e ap p lican t sp o u s e ’s in terest in the property, and other resou rces, are su fficien t to su p p ort the credit requested. in form ation to th e exten t the v id eo d isp la y m akes it p o ssib le to do so. 7(d)(6) III. F orm o f C om m ent Letters P rop osed co m m en t 7(d)(6)— cla rifies 1 that a creditor m ay require that th e partners, officers or directors o f a cred itw orth y b u sin e ss p erson ally guarantee an ex te n sio n o f credit to the b u sin e ss, as lon g as a guarantee is not required on a p roh ib ited b asis— e.g., o n ly th o se b u sin e sse s o w n ed by w o m e n or m in orities. C om m ent 7(d)(6)— w o u ld be rev ised 2 to clarify that w h e n th e circu m sta n ces o f a b u sin e ss lo a n require th e guarantee o f a sp o u se w ith n o interest in th e b u sin e ss, th e creditor c o u ld ask the d isin terested sp o u se to sign a lim ite d guarantee. C om m ent letters sh o u ld refer to D ock et N o. R— 9 1 0 . T he Board requests 0 that, w h e n p o ssib le, com m en ts be prepared u sin g a standard courier ty p efa ce w ith a ty p e siz e o f 10 or 12 characters per in ch . T h is w ill en ab le the Board to con vert th e text in to m ach in ereadable form through electron ic sca n n in g , and w ill facilitate autom ated retrieval o f co m m en ts for review . C om m en ts m ay also be subm itted on com p u ter d isk ettes, u sin g eith er the 3 .5 ” or 5 .2 5 ” siz e , in any IB M -com patible D O S-based format. C om m ents on co m p u ter d isk ettes m u st be a cco m p a n ied by a paper version. S e c tio n 2 0 2 .1 3 — In form ation f o r M o n ito rin g P u rp o ses List o f S ubjects in 12 CFR Part 202 13(a) Inform ation T o B e R equested C om m ent 1 3 (a )-6 w o u ld b e r ev ised to clarify that a refin an cin g in v o lv e s the satisfa ctio n o f an e x istin g o b ligation that is rep la ced by a n e w obligation un d ertak en b y th e sam e borrow er. T he p ro p o sed clarification is co n siste n t w ith th e d e fin itio n o f “refin an cin g” in other Board regu lation s, su ch as R egulation C (H om e M ortgage D isclosu re), 12 CFR 2 0 3 , and R egulation Z (Truth in L ending), 12 CFR 226. 13(b) O btaining o f Inform ation P rop osed co m m en t 1 3 (b )-4 a d d resses th e c o lle c tio n o f m on itorin g inform ation for a p p lica tio n s su b m itted through an e lec tro n ic m ed iu m that d o es n ot perm it th e creditor to v ie w th e ap p lican t. In th e se in sta n ces, th e creditor sh o u ld treat th e a p p lica tio n as if it w ere a ccep ted by m a il or telep h o n e. P ro p o sed com m en t 13 (b )-5 ad d resses th e c o lle c tio n o f m on itorin g inform ation for a p p lica tio n s sub m itted through an in teractive v id e o p rocess. R egulation B requires a creditor to ask h om e m ortgage loan a p p lica n ts for m onitoring inform ation and, if th e ap p lican t c h o o se s n ot to p rovid e the inform ation, requires the cred itor to n o te the inform ation on th e ap p lication on the basis o f v isu a l observation or surnam e. T here is an e x c e p tio n for te lep h o n e or m ail a p p lica tio n s. W here the creditor has the cap ab ility to v ie w the a p p lican t during the p ro cess, h ow ever, su ch as w ith an in teractive v id eo , the Board b e lie v e s the a p p lica tio n is lik e an inperson ap p lica tio n . T h u s, a creditor m u st ask th e a p p lican t for m on itorin g inform ation and enter the inform ation p rovid ed on th e ap p lica tio n form. If th e ap p lican t d o es not p rovide the inform ation, the creditor m ust n o te the A ged , Banks, banking, C ivil rights, C on su m er p rotection , Credit, D iscrim in a tio n , Federal R eserve S ystem , M arital statu s d iscrim in ation , P en a lties, R elig io u s d iscrim in a tion , R eporting and record k eep ing requirem ents, S ex d iscrim in a tio n . Certain c o n v e n tio n s have b een u sed to h ig h lig h t th e p rop osed ch an ges to the staff com m entary. N e w language is sh o w n in sid e b old -faced arrow s, w h ile language that w o u ld be rem oved is set o ff w ith brackets. For th e reason s se t forth in the pream ble, th e Board p rop oses to am end 12 CFR part 202 as se t forth below : PART 202— EQUAL CREDIT OPPORTUNITY (REGULATION B) 1. T h e authority cita tion for Part 202 c o n tin u e s to read as follow s: Authority: 15 U.S.C. 1691-1691f. 2. In S u p p lem en t I to Part 202, u n d er S e c tio n 2 0 2 .2 D efin itio n s, under 2 (p ) E m p iric a lly d e r iv e d a n d o th er c r e d it sc o rin g sy ste m s., three n e w sen ten ces w o u ld be ad d ed at th e end o f paragraph 2 to read as follow s: S u p p le m e n t I to P art 2 0 2 — O fficial S ta ff In terp reta tio n s * * * * * Section 202.2 Definitions * * * * * 2(p) Empirically derived and other credit scoring systems. * * * * * 2. * * * ►To ensure that predictive ability is being maintained, the performance . of the system should be monitored. This could be done, for example, by analyzing the loan portfolio to determine the delinquency rate for each score interval. If these data indicate that the system is no longer identifying risk as predicted, the system must Federal Register / Vol. 60, No. 249 / Thursday, December 2ff, 1995 / Proposed Rules home, the current interest rate, and the borrower’s life expectancy. Age may be directly taken into account in setting the 3. In S u p p lem en t I to Part 20 2 , u n d er terms of a reverse mortgage without violating the regulation B.-^ S ectio n 20 2 .5 R u le s C o n cern in g T a k in g * * * * * be revalidated and the variables for each score interval adjusted accordingly.-** * * * * * 67099 partition and the cost of such action. t>This determination must be based on the actual form of ownership of the property prior to or at consummation, and not on the possibility of a subsequent change in the form of ownership. For example, in determining o f A p p lic a tio n s, u n d er 5(e) W ritten whether a married applicant’s interest in Paragraph 6(b)(6) a p p lic a tio n s., paragraph 3. w o u ld b e property is sufficient to satisfy the creditor’s 1. [Types o f credit references.] revised to read as follow s: standards o f creditworthiness for individual ►Evaluating credit history .-^ A creditor may credit, a creditor may not obtain the signature * * * * * restrict the types of credit history and credit spouse based on the references that it will consider, provided that of the nonapplicantapplicant’s separatelySection 202.5 Rules Concerning Taking o f possibility that the the restrictions are applied to all credit Applications held property may be transferred into applicants without regard to sex, marital * * * * * tenancy by the entirety after consummation. status, or any other prohibited basis. Similarly, a creditor may not routinely However, on the applicant’s request, a 5(e) Written applications. require a nonapplicant to execute creditor must consider credit information not any document (such as joint owner deed) Uiat * * * * * a quitclaim reported through a credit bureau when the would change the nonapplicant joint owner’s 3. Computerized entry. Information entered information relates to the same types of interest in by the directly into and retained by a computerized credit references and history that the creditor to support property offered credit. applicant system qualifies as a written application the extension of would consider if reported through a credit b. Other options to support credit .<3 If the under this paragraph. (See the commentary to bureau. section 202.13(b) £►, Applications through applicant’s interest in the property does not ►i. At the applicant’s request, a creditor electronic media and Applications through support the amount and terms of credit must consider credit information of the same sought, the creditor may give the applicant interactive v id e o s .) type that the creditor would consider if * * * * * some other option of providing additional reported through a credit bureau. For support for the extension of credit!, ft ► . 4. In S u p p lem en t I to Part 202, example,.if a creditor normally considers car F-^8or example!—]►: S ectio n 2 0 2 .6 R u les C on cern in g loan payments, and the consumer presents i ^ l [r]^-R-<lequiring an additional party E valu ation o f A p p lic a tio n s w o u ld be credible information (such as cancelled under § 202.7(d)(5)^; checks or money-order receipts) about am en d ed as follow s: ii. -^ [o]>-0<ftfering to grant the payment history on a car loan from a finance applicant’s request on a secured credit a. U nder Paragraph 6(b)(2), paragraph company that did not report to a credit 2. w o u ld be revised ; paragraphs 4. and basis^-; or iii. - ^ [aJ^-A-«*skftig for the signature of the 5. w o u ld b e redesign ated as paragraphs bureau, the creditor must consider this information in its evaluation of credit co-owner of the property on an instrument 5. and 6., resp ectively; an d n e w history. that ensures access to the property but does paragraph 4. w o u ld be added; and ii. At the applicant’s request, a creditor not impose personal liability unless b. Paragraph 6(b)(6) w o u ld be rev ised . must consider information that a credit Tiecessary under state la w ^ (which could T he ad d itio n s an d r ev isio n s w o u ld history reported in both spouses’ names does include, for example, a security agreement, read as follow s: not accurately reflect the applicant’s ability deed o f trust, mortgage, limited guarantee, * * * * * or willingness to repay. For example, assume quitclaim deed, or status statement from the an applicant applies for individual credit and ponapplicant owner). Section 202.6—Rules Concerning Evaluation the credit bureau report shows late payments * * * - • - * * o f Applications on a mortgage obligation held jointly with a * * * * * Paragraph 7(d)(6) former spouse. If the applicant can 1. Guarantees. A guarantee on an extension Paragraph 6(b)(2) demonstrate that the former spouse alone of credit is part o f a credit transaction and * * * * * was responsible for the late payments (such • therefore subject to the regulation. ► A 2. Consideration o f age in a credit scoring as by a transfer of title to the former spouse creditor may require the personal guarantee and a document from the mortgage creditor system. Age may be taken directly into of the partners, directors, or officers of a that released the applicant from liability for account in a credit scoring system that is business even if the business itself is the debt) the creditor must disregard both the ‘creditworthy. The guarantee must be based “demonstrably and statistically sound,” as mortgage debt and the late payments in defined in § 202.2(p), with one limitation: an on the guarantor’s relationship with the determining the applicant’s applicant who is 62 years or older must be business, however, and not on a prohibited creditworthiness.-^1 treated at least as favorably as anyone who basis. * * * * * is under 62. K>-For example, an applicant 2. Spousal guarantees. The rules in who is 62 years or older may not be denied § 202.7(d) bar a creditor from requiring the 5. In Sv\pplement I to Part 202, credit if an applicant under age 62 with the signature of a guarantor’s spouse just as they S ectio n 202.7—R u le s C on cern in g same characteristics would be approved for E x ten sio n s o f C redit, would be amended bar the creditor from requiring the signature credit under the scoring system. Thus, a of an applicant’ spouse. For example, s as follows: creditor using an age-based credit scoring although a creditor may require all officers of a. Under Paragraph 7(d)(2), paragraph a closely held corporation to personally system must ensure that elderly applicants who do not qualify under the factors assigned 1. would be revised; and guarantee a corporate loan, the creditor may to elderly age groups ar^ rescored using the b. Paragraph 7(d)(6) would be revised^ not automatically require that spouses of factors or weights assigned to all other age The revisions would read as follows: married officers also sign the guarantee. If an groups in the system.-**! * * * * * evaluation of the financial circumstances of * * * * * an officer indicates that an additional Section 202.7—Rules Concerning Extensions signature is necessary, however, the creditor ► 4. Consideration o f age in a reverse of Credit may require the signature of a spouse in mortgage. A reverse mortgage is a home* * * * * appropriate circumstances—for example, if secured loan in which the borrower receives the property relied upon to meet the payments from the creditor, and does not Paragraph 7(d)(2) creditor's standards is held jointly. In such a become obligated to repay these amounts 1. Jointly owned property. O-a. Valuation case, the creditor could ask the spouse to sign until the expiration of a term or when the o f applicant’s interest.-^ In determining the an instrument that provides for liability to borrower dies, moves permanently from the value of [the] ^-an-<< applicant’s interest in the extent of the spouse’s interest in the home, or transfers title to the home. jointly owned property, a creditor may property relied upon to support the credit Disbursements to the borrower under a consider factors such as the [form of (such as a limited guarantee).-^ reverse mortgage typically are determined by ownership and the] property’s susceptibility * * * * * considering the value of the borrower’s to attachment, execution, severance, or 67100 Federal Register / Vol. 60, No. 249 / Thursday, December 28, 1995 / Proposed Rules 6. In Supplement I to Part 202, Section 202.13—Information for Monitoring purposes, would be amended as follows: a. Under 13(a) Information to be requested., paragraph 6. would be revised; and b. Under 13(b) Obtaining of information., paragraphs 4. and 5. would be redesignated as paragraphs 6. and 7. respectively, and new paragraphs 4. and 5. would be added. The revisions and additions would read as follows: * * * * * Section 202.13 Information for Monitoring purposes 13(a) Information to be requested. * * * * * 6. Refinancings. ► A refinancing occurs when an existing obligation is satisfied and replaced by a new obligation undertaken by the same borrower. d A creditor that receives an application to [change the terms and conditions of) ► refin an ced an existing extension of credit made by that creditor for the purchase of the applicant’s dwelling may request the monitoring information again but is not required to do so if it was obtained in the earlier transaction. * * * * * 13(b) Obtaining o f information. * * * * * ►4. Applications through electronic media. If an applicant applies through an electronic medium (for example, via the Internet or by facsimile) without any face-toface interactive video capability, the creditor should treat the application as if it were accepted by mail or telep h o n e.d ►5. Applications through interactive video. If a creditor takes an application through an interactive application process with video capabilities, and the creditor caD see the applicant, the creditor should treat these applications as taken in person and collect the monitoring inform ation.d * * * * * By order of the Secretary of the Board, acting pursuant to delegated authority for the Board of Governors of the Federal Reserve System, December 21,1995. Jennifer J. Johnson, Deputy Secretary o f the Board. [FR Doc. 95-31363 Filed 12-27-95; 8:45 am] BILUNG CODE 6210-01-P