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FDIC Enforcement Decisions and Orders

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{{11-30-91 p.C-113}}
   [10,024] In the Matter of Badger State Bank, Badger, Minnesota, Docket No. FDIC-89-101b (11-22-89).

   Bank to cease and desist from practices such as operating with an excessive volume of adversely classified assets; engaging in hazardous lending and lax collection practices, with inadequate equity capital and allowance for loan losses, with management whose policies and practices are detrimental to Bank, and operating with deficient or inadequate loan documentation; engaging in practices which produce inadequate operating income and excessive loan losses; failing to provide adequate supervision and direction over the affairs of Bank to prevent unsound practices and violations of law. (This order was terminated by order of the FDIC dated 9-13-91; see ¶ 15,327.)

   [.1] Board of Directors—Increase—Outside Directors
   [.2] Definition—"Outside Director"
   [.3] Management—Qualifications—Compliance
   [.4] Assets—Adversely Classified—Reduce
   [.5] Equity Capital—Increase—Methods
   [.6] Loans—Allowance for Losses—Review
   [.7] Loans—Extension of Credit—Curtail
   [.8] Loans—Interest Accrual—Curtail—Exception
   [.9] Loan Policy—Minimum Requirements
   [.10] Profit Plan—Income and Expense—Review
   [.11] Investment Policy—Written Plan—Review
   [.12] Shareholders—Dividends—Approval
   [.13] Shareholders—Disclosure—Cease and Desist Order
   [.14] Technical Exceptions—Eliminate and/or Correct—Review
   [.15] Violations of Law—Eliminate and/or Correct
   [.16] Compliance—Progress Reports—Frequency

In the Matter of

BADGER STATE BANK
BADGER, MINNESOTA
(Insured State Nonmember Bank)
ORDER TO CEASE AND DESIST

   The Federal Deposit Insurance Corporation ("FDIC") on May 23, 1989, issued to Badger State Bank, Badger, Minnesota ("Bank"), a NOTICE OF CHARGES AND OF HEARING ("NOTICE") under section 8(b) of the Federal Deposit Insurance Act ("Act"), as amended by sections 901 and 902 of the Financial Institutions Reform, Recovery, and Enforcement Act of 1989 ("FIRREA"). Pub. L. No. 101-73, §§ 901 and 902, 103 Stat. 183, _____ (sections 901 and 902 to be codified in relevant part at 12 U.S.C. § 1818(b)). The NOTICE charged
{{11-30-91 p.C-114}}the Bank with having engaged in unsafe or unsound banking practices and having violated certain laws and regulations.
   The Bank and counsel for the FDIC thereafter executed a STIPULATION AND CONSENT TO THE ISSUANCE OF AN ORDER TO CEASE AND DESIST ("CONSENT AGREEMENT"), dated November 15, 1989, whereby solely for the purpose of this proceeding and without admitting or denying any of the allegations in the NOTICE, the Bank consented to the issuance of an ORDER TO CEASE AND DESIST ("ORDER") by the FDIC.
   The FDIC considered the matter and determined that it had reason to believe that the Bank had engaged in unsafe or unsound banking practices and had violated laws and/ or regulations. The FDIC, therefore, accepted the CONSENT AGREEMENT and issued the following:

ORDER TO CEASE AND DESIST

   IT IS HEREBY ORDERED, that the Bank, its Institution-Affiliated Parties, as that term is defined in the Act, as amended by section 204(f)(6) of FIRREA, Pub. L. 101-73, § 204(f)(6), 103 Stat. 183, _____ (to be codified at 12 U.S.C. § 1813(4)), successors and assigns, cease and desist from the following unsafe and unsound banking practices and violations of law and regulations:
   A. operating with an excessive volume of adversely classified assets;
   B. engaging in hazardous lending and lax collection practices, including maintaining an excessive volume of adversely classified loans;
   C. operating with inadequate equity capital and allowance for loan and lease losses for the kind and quality of assets held;
   D. engaging in violations of applicable laws and regulations;
   E. operating with management whose policies and practices are detrimental to the Bank;
   F. operating with deficient or inadequate loan documentation, including but not limited to failing to obtain adequate documentation respecting current financial statements, insurance coverage, title searches or legal opinions, and cash flow and/or operating information;
   G. engaging in practices which produce inadequate operating income and excessive loan losses;
   H. failing to provide adequate supervision and direction over the affairs of the Bank to prevent unsafe or unsound practices and violations of law and/or regulations; and
   I. operating with an inadequate allowance for loan and lease losses for the volume, kind and quality of loans held.
   IT IS FURTHER ORDERED, that the Bank, its Institution-Affiliated Parties, successors and assigns, take affirmative action as follows:

   [.1][.2] 1. Within ninety (90) days from the effective date of this ORDER, the Bank shall take all steps necessary to increase the number of board of director members who are independent with respect to the Bank. For purposes of this ORDER, a candidate who is independent with respect to the Bank. For purposes of this ORDER, a candidate who is independent with respect to the Bank shall be an individual (1) who is not an officer of the Bank or any of its affiliated organizations and who does not own more than five (5) percent of the outstanding shares of the Bank or any of its affiliated organizations, (2) who is not related by blood, marriage, or common financial interest to an officer of the Bank or any of its affiliated organizations or to any stockholder owning more than five (5) percent of the outstanding shares of the Bank or any of its affiliated organizations, and (3) who is not indebted to the Bank, directly, or indirectly (including the indebtedness of any entity in which the individual has a substantial financial interest) in an amount exceeding five (5) percent of the Bank's total equity capital and allowance for loan and lease losses.

       [.3] 2. (a) (i) No more than 90 days from the effective date of this ORDER, the Bank shall have and thereafter retain qualified management. At a minimum, such management shall include a qualified senior lending officer who shall be given stated written authority by the Bank's board of directors, including responsibility for implementing and maintaining he lending policies of the Bank. This senior lending officer shall have an appropriate level of lending, collection, and loan supervision experience for the type and quality of the Bank's loans. The Bank shall promptly notify the Regional Director of the FDIC's Kansas City Re- {{4-1-90 p.C-115}}gional Office ("Regional Director") of the identity of said senior lending officer. The Bank shall also promptly notify the Regional Director in writing of changes in the Bank's management. The notification shall include the name and background of any replacement management personnel and shall be submitted prior to the date the individual assumes the management provision.
       (ii) The assessment of whether the Bank has "qualified management" shall be based upon management's conduct, both individual and joint, with respect to the Bank in: (A) complying with the requirements of this ORDER; (B) complying with applicable laws and regulations; and (C) not engaging in any unsafe or unsound banking practice which has an adverse effect on the Bank's asset quality, capital adequacy, earnings, or liquidity.
   (b) The board of directors shall in no more than 30 days from the effective date of this ORDER develop a written analysis and assessment of the Bank's management and staffing needs ("management plan"), which shall include, at a minimum:
       (i) identification of both the type and number of officer positions needed to manage and supervise properly the affairs of the Bank;
       (ii) identification and establishment of such Bank committees as are needed to provide guidance and oversight to active management;
       (iii) evaluation of each Bank officer, and in particular the senior lending officer, and staff members to determine whether these individuals possess the ability, experience and other qualifications required to perform present and anticipated duties, including adherence to the Bank's established policies and practices, and maintenance of the Bank in a safe and sound condition; and
       (iv) a plan of action to recruit and hire any additional or replacement personnel with the requisite ability, experience and other qualifications, which the board of directors determines are necessary to fill Bank officer or staff member positions consistent with the board's analysis, evaluation and assessment as provided in paragraphs 1(b)(i) and 1(b)(iii) of this ORDER.
   (c) The written management plan and any subsequent modification thereto shall be submitted to the Regional Director and the Commissioner of Commerce for the State of Minnesota ("Commissioner") for review and comment. No more than 30 days from the receipt of any comment from the Regional Director, and after consideration of such comment, the board of directors shall approve the written management plan and/or any subsequent modification thereto which approval shall be recorded in the minutes of the board of directors. Thereafter, the Bank and its Institution-Affiliated Parties shall implement and follow the written management plan and/or any subsequent modification thereto.
   (d) The written management plan shall also include the requirement that the board of directors of the Bank provide supervision over lending, investment and operating policies of the Bank sufficient to ensure that the Bank complies with the provisions of this ORDER.
   (e) Effective the date of this ORDER, the Bank's board of directors shall meet at least monthly. The board shall prepare in advance and shall follow a detailed written agenda at each meeting, which shall include consideration of actions of any committees. Nothing in the foregoing sentence shall preclude the board from considering matters other than those contained in the agenda. Detailed written minutes of all board meetings shall be maintained and recorded on a timely basis.

   [.4] 3. No more than 10 days from the effective date of this ORDER, the Bank: (1) shall eliminate from its books, by charge-off, collection, or other proper entries, all assets or portions of assets classified "Loss" as of January 5, 1989; and (2) shall either (A) eliminate from its books by charge-off, collection, or other proper entries, or (B) if the asset is an extension of credit or lease, increase its allowance for loan and lease losses by an amount equal to, 50 percent of those assets or portions of assets classified "Doubtful" as of January 5, 1989, which have not been previously collected, charged off, or otherwise eliminated by other proper entries. Reduction of these assets through use of proceeds of loans made by the Bank {{4-1-90 p.C-116}}does not constitute collection for the purpose of this paragraph.

   [.5] 4. (a) (i) No more than 180 days from the effective date of this ORDER, the Bank shall have equity capital, exclusive of the allowance for loan and lease losses, at or in excess of 6 percent of the Bank's average total assets ("equity capital ratio") and shall thereafter maintain its equity capital ratio at or in excess of such level as calculated herein while this ORDER is in effect.
   (ii) For the purposes of calculating the equity capital ratio required by paragraph 4(a)(i) of this ORDER: (A) The Bank's average total assets shall be the quarterly average of the total assets reported in the Bank's Report of Condition for the quarter ending June 30 or December 31, whichever nearest precedes the date of calculation, except that for purposes of calculating the initial equity capital ratio 180 days immediately after the effective date of this ORDER, the Bank's average total assets shall be the quarterly average of the total assets reported in the Bank's Report of Condition for the quarter ending March 31, 1990; and (B) The terms "equity capital", "allowance for loan and lease losses" and "total assets" shall have the same meaning as those terms have in the prevailing Instructions for Preparation of Reports of Condition. Subsequent to 180 days after the effective date of this ORDER, the equity capital ratio shall be computed as of June 30 and December 31, as appropriate.
   (b) If, during the period this ORDER is in effect, the equity capital ratio, exclusive of the allowance for loan and lease losses, declines below 6 percent, the Bank, within 30 days after the date on which the said ratio so declined, shall develop and implement a written plan to increase such ratio up to or in excess of 6 percent. Such increase in equity capital may be accomplished by:

       (i) the sale of new offerings of common stock or perpetual preferred stock;
       (ii) the sale of outstanding shares by the Bank's shareholders to any investor who has the financial capability to make the additions to the Bank's equity capital required by paragraph 4(b);
       (iii) the direct contribution of cash by the shareholders and/or directors of the Bank;
       (iv) the collection of all or part of assets classified "Loss" or "Doubtful" as of January 5, 1989, without loss or liability to the Bank, provided any such collection on a partially charged off asset shall first be applied to that portion of the asset which was not charged off pursuant to paragraph 3 of this ORDER. Collections on loans or leases classified "Loss" or "Doubtful" shall be credited to the Bank's allowance for loan and lease losses ("allowance") and, if the board of directors' review of the adequacy of the allowance required by paragraph 5 of this ORDER indicates that such allowance has a balance in excess of that required for adequacy, any such excess may thereafter be transferred to equity capital through a negative provision for loan and lease losses;
       (v) the collection in cash of assets previously charged off;
       (vi) any combination of the above means; or
       (vii) any other means acceptable to the Regional Director.
   No more than 60 days after the implementation of the written plan, the Bank's equity capital ratio, exclusive of the allowance for loan lease losses, shall equal or exceed 6 percent and the Bank shall thereafter maintain its equity capital ratio at or in excess of such level as calculated herein while this ORDER is in effect.
   (c) If all or part of the increase in total equity capital required under paragraph 4(b) of this ORDER involves an offering, other than an offering deemed not to be a public securities offering pursuant to 17 C.F.R. § 230.506 or as hereafter amended, of the Bank's securities (including a distribution limited only to the Bank's existing shareholders), the Bank shall prepare detailed offering materials fully describing the securities being offered, including an accurate description of the financial condition of the Bank and of this ORDER as well as the circumstances giving rise to the offering, and any other material disclosures necessary to comply with the Federal securities laws. Prior to the sale of the securities, and, in any event not less than 20 days prior to the dissemination of such materials, the materials used in the sale of the securities shall be submitted to the FDIC, Registration and Disclosure Unit, Washington, D.C. 20429, for review. Any changes re- {{4-1-90 p.C-117}}quested in the materials by the FDIC shall be made prior to their dissemination.
   (d) In complying with the provisions of paragraph 4(c) of this ORDER, the Bank shall provide to any subscriber and/or purchaser of Bank stock, written notice of any planned or existing development or other change which is materially different from the information reflected in any offering materials used in connection with the sale of Bank securities. The written notice required by this paragraph 4(d) shall be furnished within ten (10) calendar days from the date such material development or change was planned or occurred, whichever is earlier, to every purchaser and/or subscriber of Bank stock who received or was tendered the information contained in the Bank's original offering materials.
   (e) The Bank's board of directors shall maintain in its minutes a written record of all actions taken by the Bank to comply with the capital requirements of paragraphs 4(a) through 4(d) of this ORDER, including any action to increase its equity capital by each of the methods specified in paragraphs 4(b)(i) through 4(b)(vii) of this ORDER.
   (f) Nothing in this ORDER shall operate to subject any individual director of the Bank to a Federal District Court order of enforcement pursuant to section 8(i)(1) of the Act, as amended by section 901(d) of FIRREA, Pub. L. 101-73, § 901(d), 103 Stat. 183, _____ (section 901(d) to be codified in relevant part at 12 U.S.C. § 1818(i)(1)), or imposition of civil money penalties pursuant to section 8(i)(2) of the Act, as amended by section 907(a) of FIRREA, Pub. L. 101-73, § 907(a), 103 Stat. 183, _____ (to be codified at 12 U.S.C. § 1818(i)(2)), for failure to utilize such director's personal assets to satisfy the capital requirements of paragraphs 4(a) through 4(d) of this ORDER; provided, however, that the sale of new offerings of common stock or perpetual preferred stock pursuant to paragraph 4(b)(i) of this ORDER shall not be considered to be a utilization of such director's personal assets, even if such sale may result in the diminution in value of stock held by any director.

   [.6] 5. (a) The Bank shall maintain an allowance for loan and lease losses in accordance with the prevailing requirements of the Instructions for the Reports of Condition and Income ("Instructions").
   (b) Reports of Condition and Income required to be submitted by the Bank as of each Report date, as that term is used in the Instructions, between and including December 31, 1988, and the effective date of this ORDER, shall, at a minimum, reflect an allowance for loan and lease losses that should have been maintained in accordance with the Instructions. If necessary to comply with this paragraph 5(b), the Bank shall file amended Reports of Condition and Income within 10 days from the effective date of this ORDER.
   (c) Prior to the submission of any Report of Condition or Report of Income required to be filed by the Bank after the effective date of this ORDER, the board of directors of the Bank shall: (1) review the adequacy of the Bank's allowance for loan and lease losses, (2) provide for an adequate allowance, and (3) accurately report the allowance in any such Report of Condition and Income. The minutes of the board meeting at which such review is undertaken shall indicate the results of the review, including any increases in the allowance, and the basis for determining the amount of allowance provided.

   [.7] 6. (a) Within 30 days from the effective date of this ORDER, the board of directors shall develop a written plan of action to lessen the Bank's risk position in each line of credit aggregating $25,000 or more which was classified "Substandard" or "Doubtful" as of January 5, 1989. In developing such plan, the Bank shall, at a minimum:

       (i) review the financial position of each such borrower, including source of repayment, repayment ability, and alternative repayment sources; and
       (ii) evaluate the available collateral for each such credit, including possible actions to improve the Bank's collateral position.
   Based upon such review and evaluation, the written plan of action shall: (A) establish target dollar levels to which the Bank shall reduce the aggregate dollar volume of "Substandard" or "Doubtful" classifications within 6 and 12 months from the effective date of this ORDER; and (B) provide for the submission of written monthly progress reports to the Bank's board of directors for review and notation in the board minutes. As used in this paragraph 6, "reduce" {{4-1-90 p.C-118}}means to (1) collect, (2) charge off, or (3) improve the quality of such assets so as to warrant removal of any adverse classification by the FDIC.
   (b) The written plan of action described by paragraph 6(a) and any subsequent modification thereto shall be submitted to the Regional Director and the Commissioner for review and comment. No more than 30 days after the receipt of any comment from the Regional Director, the board of directors shall approve the written plan of action, which approval shall be recorded in the minutes of the board of directors. Thereafter, the Bank and its Institution-Affiliated Parties shall follow the written plan of action and/or any subsequent modification.
   7. Effective the date of this ORDER, the Bank shall not extend, directly or indirectly, credit to, or for the benefit of, any borrower who has a loan or other extension of credit with the Bank that has been charged off or classified, in whole or in part, "Loss", "Doubtful", or "Substandard", and is uncollected, unless a majority of the Bank's board of directors first (1) determines that such advance is in the best interest of the Bank, (2) determines that the Bank has satisfied the requirements set out in paragraph 6 of this ORDER as to such borrower, and (3) approves such advance. A written record of the board of directors' determination and approval of any advance under the terms of this paragraph 7 shall be maintained in the credit file of the affected borrower(s) as well as the minutes of the board of directors. The requirements of this paragraph 7 do not prohibit the Bank from renewing any credit already extended to the borrower.

   [.8] 8. Effective the date of this Order, the Bank shall not accrue interest on any loan that is, or becomes, ninety (90) days or more delinquent as to principal or interest, unless the loan is both well secured and in the process of collection; "well secured" and "in the process of collection" shall have the same meaning as those terms have in the prevailing Instructions for the Reports of Condition and Income. The Bank shall reverse on its books all previously accrued but uncollected interest on any loan that has ceased to accrue interest pursuant to this provision.

   [.9] 9. (a) No more than 90 days from the effective date of this ORDER, the Bank shall revise its written loan policy which revision shall include, at a minimum:

       (i) the lending authority of the loan officer,
       (ii) the lending authority of a loan or executive committee, if any;
       (iii) the responsibility of the board of directors in reviewing, ratifying and approving loans;
       (iv) the guidelines under which unsecured loans will be granted;
       (v) the guidelines for rates of interest and terms of repayment for unsecured loans and secured loans;
       (vi) with regard to secured loans: (1) limitations on the amount advanced in relation to the value of the collateral, and (2) the documentation required by the Bank for each type of secured loan;
       (vii) the maintenance and review of complete and current credit files on each borrower;
       (viii) appropriate and adequate collection procedures, including, but not limited to, the actions to be taken against borrowers who fail to make timely payments;
       (ix) guidelines establishing limitations on the maximum volume of loans in relation to total assets;
       (x) the determination and documentation of sources and terms of loan repayment;
       (xi) retention of lien searches and appraisals covering personal property and liens on real estate;
       (xii) maintenance of written, individual loan file comments by officers;
       (xiii) provisions addressing the capitalization of accrued and unpaid interest on loans;
       (xiv) procedures regarding designations of nonaccrual loans;
       (xv) procedures for identifying, supervising, and collecting problem loans; and
       (xvi) periodic review of the overdue, problem and/or adversely classified or special mention loans by the directorate, so as to monitor management's administration of such distressed credits, and to provide guidance.
   (b) The revised written loan policies and any subsequent modification thereto shall be submitted to the Regional Director and the Commissioner for review and com- {{4-1-90 p.C-119}}ment. No more than 30 days after the receipt of any comment from the Regional Director, the board of directors shall approve the written loan policies and/or any subsequent modification thereto which approval shall be recorded in the minutes of the board of directors. Thereafter, the Bank and its Institution-Affiliated Parties shall follow the written loan policies and/or any subsequent modification thereto.

   [.10] 10. (a) No more than 30 days from the effective date of this ORDER, the Bank shall develop a written profit plan consisting of goals and strategies for improving the earnings of the Bank, which written profit plan shall include, at a minimum:

       (i) identification of the major areas in, and means by, which the board of directors will seek to improve the Bank's operating performance;
       (ii) realistic and comprehensive budgets;
       (iii) a budget review process to monitor the income and expenses of the Bank to compare actual figures with budgetary projections; and
       (iv) a description of the operating assumptions that form the basis for, and adequately support, major projected income and expense components.
       (b) The written profit plan and any subsequent modification thereto shall be submitted to the Regional Director and the Commissioner for review and comment. No more than 30 days after the receipt of any comment from the Regional Director, the board of directors shall approve the written profit plan and any subsequent modification thereto which approval shall be recorded in the minutes of the board of directors. Thereafter, the Bank and its Institution-Affiliated Parties shall follow the written profit plan and/or any subsequent modification thereto.

   [.11] 11. No more than 30 days from the effective date of this ORDER, the Bank shall revise its written investment policy, which revision shall include at a minimum: establishing authority for the purchase and sale of investment securities; developing guidelines for permissible investments including their quality, maturity, diversification, marketability and income potential; and establishing procedures for review and approval of the investment portfolio by the board of directors. The revised investment policy and any subsequent modification thereto shall be submitted to the Regional Director and Commissioner for review and comment. No more than 30 days from the receipt of any comment from the Regional Director, the board of directors shall approve the revised written investment plan and any subsequent modification thereto which approval shall be recorded in the minutes of the board. Thereafter, the Bank and its Institution-Affiliated Parties shall follow the revised written investment plan and/or any subsequent modification thereto.

   [.12] 12. The Bank shall not pay or declare any cash dividends without the prior written consent of the Regional Director and the Commissioner.

   [.13] 13. Following the effective date of this ORDER, the Bank shall send to its shareholders a description of this ORDER, (1) in conjunction with the Bank's next shareholder communication, and also (2) in conjunction with its notice or proxy statement preceding the Bank's next shareholder meeting. The description shall fully describe the ORDER in all material respects. The description and any accompanying communication, statement, or notice shall be sent to the FDIC, Registration and Disclosure Unit, Washington, D.C. 20429, for review at least 20 days prior to dissemination to shareholders. Any changes requested by the FDIC shall be made prior to dissemination of the description, communication, notice, or statement.

   [.14] 14. (a) No more than 60 days from the effective date of this ORDER, the Bank shall correct the technical exceptions on loans noted on pages 2-d through 2-d-3 of the FDIC's Report of Examination of the Bank as of January 5, 1989. For any technical exception with respect to which correction is impracticable or impossible due to the pending bankruptcy, incapacity, absence, or other conduct or condition of the borrower outside the reasonable control of the Bank, the Bank shall promptly correct the technical exception when the impediment to correction is removed. The Bank's board of directors shall maintain in its minutes a written record of all actions taken by the Bank to comply with the requirements of this paragraph 14(a), including specifically noting the conduct and/or conditions {{4-1-90 p.C-120}}making correction of any technical exception impracticable or impossible.
   (b) Except for the concentration of credit involving the Bank's correspondent bank account at First Bank, N.A., Minneapolis, Minnesota, no more than 60 days from the effective date of this ORDER, the Bank shall formulate and implement a plan to reduce all concentrations of credit as noted on page 2-b of the FDIC's Report of Examination of the Bank as of January 5, 1989, to less than 25 percent of total equity capital and allowance for loan and lease losses.

   [.15] 15. No more than 60 days from the effective date of this ORDER, the Bank shall take those steps necessary, consistent with sound banking practices, to eliminate and/or correct all violations of law and regulations committed by the Bank as described on pages 6-1 through 6-1-b of the FDIC's Report of Examination of the Bank as of January 5, 1989, except the violation of section 215.4(b)(1) of Regulation O, 12 C.F.R. § 215.4(b)(1), and section 337.3 of FDIC's Rules and Regulations, 12 C.F.R. § 337.3, involving the James Meland line of credit.

   [.16] 16. The Bank shall furnish written progress reports to the Regional Director and the Commissioner detailing the form and manner of any action taken to secure compliance with this ORDER and the results thereof every 90 days, beginning 90 days from the effective date of this ORDER. In addition, the Bank shall furnish such reports on request of either the Regional Director or the Commissioner. All progress reports and other written responses to this ORDER shall be reviewed by the board of directors of the Bank and made a part of the minutes of the board meeting.
   17. This ORDER shall become effective ten (10) days from the date of its issuance.
   The provisions of this ORDER shall be binding upon the Bank, its Institution-Affiliated Parties, successors and assigns.
   The provisions of this ORDER shall remain effective and enforceable except to the extent that, and until such time as, any provisions of this ORDER shall have been modified, terminated, suspended, or set aside by the FDIC.
   Pursuant to delegated authority.
   Date of issuance: Nov. 22, 1989

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