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Demand for high-interest payday loans soars in Minnesota

MinnPost photo by Jeff Hargarten
On a typical morning throughout Minnesota, customers stream into any one of some 100 storefronts where they can borrow hundreds of dollars in minutes with no credit check.

This article was reported and written by Jeff Hargarten, Kevin Burbach, Calvin Swanson, Cali Owings and Shayna Chapel. The article was supervised by MinnPost journalist Sharon Schmickle, produced in partnership with students at the University of Minnesota School of Journalism and Mass Communication, and is the first in a series of occasional articles funded by a grant from the Northwest Area Foundation.

Lending Trap: Cash at a Cost seriesCall it predatory lending. Or call it financial service for the neediest. Either way, more Minnesotans are turning to high-interest payday loans and other services outside the mainstream banking system, controversial enterprises that operate through a loophole to dodge state restrictions.

On a typical morning throughout Minnesota, customers stream into any one of some 100 storefronts where they can borrow hundreds of dollars in minutes with no credit check – at Super Cash on the north side of Bloomington, for example, at Ace Minnesota Corp. on Nicollet Avenue in Richfield and across the metro on Roseville’s Rice Street at PayDay America.

The demand for these loans doubled during the Great Recession, from 170,000 loans in 2007 to 350,000 in 2011, the highest reported to the Minnesota Department of Commerce in state history.

While 15 other states forbid such lending practice, Minnesota lawmakers have been largely unsuccessful in several attempts to crack down here. Some lenders have used the loophole to charge higher rates and grant bigger loans than state lawmakers had previously allowed. And they have successfully lobbied against tighter rules.

Loan data for Minnesota provided by Minnesota Department of Commerce.

Their Minnesota borrowers paid fees, interest and other charges that add up to the equivalent of average annual interest rates of 237 percent in 2011, compared with typical credit card rates of less than 20 percent, according to data compiled from records at the Minnesota Department of Commerce. The rates on loans ranged as high as 1,368 percent.

In all, Minnesotans paid these high rates on $130 million in such short-term loans in 2011, some of it to companies headquartered outside Minnesota. That is money the borrowers did not have available to spend at local grocery stores, gas stations and discount shops.

“This exploitation of low-income consumers not only harms the consumer, it also places a needless drag on the economy,” wrote Patrick Hayes, in an article for the William Mitchell Law Review.

Now, the fast-cash loan business has expanded in Minnesota and nationwide with large conventional banks – including Wells Fargo, U.S. Bank and Guaranty Bank in Minnesota – offering high-cost deposit advances that function much like payday loans.

This is the first in an occasional series of reports exploring questionable lending practices in Minnesota and what is being done about them.

Filling a need? Or preying on the needy?

Short-term lenders and their supporters insist that their loans are helpful services in cases of emergencies and other needs for quick cash. They fill a gap for people who don’t qualify for full banking service.

“We are supplying a service that the consumer can’t get somewhere else,” said Stuart Tapper, vice president of UnBank Co., which operates UnLoan Corp., the third largest payday lender in Minnesota.

The lenders also dispute the emphasis critics have placed on annual percentage rates because borrowers can pay less in interest if they pay off the loans on time, typically two to four weeks. 

However, critics say the payday lending business model depends on habitual customers taking multiple loans a year. Of some 11,500 Minnesota borrowers who obtained short-term loans in 2011, nearly one-fourth took out 15 or more loans, according to the state Commerce Department.

“Once somebody gets a payday loan, it’s a vicious cycle,” said RayeAnn Hoffman, company director of Consumer Credit of Minnesota. “You borrow the $350, and you have to pay it again in two weeks and take out another one.”

By the time Hoffman sees them, many are in deep financial trouble.

“A lot of people call me with two, three and four pay-day loans going at once,” she said.

The few-questions-asked convenience and friendly service are powerful draws, in particular to low-income people who’ve been turned away from conventional banks and who lack other financial resources.

Angelia Mayberry of South Minneapolis takes out a $200 to $300 loan from Payday America every month.

She praised the company for helping her and for its easy process.

Mayberry pays a package of fees and interest rather than the typical interest on a conventional loan. She said she doesn’t know how much interest her payments would add up to, but on its website, Payday America has listed equivalent annualized rates ranging from 228 percent to more than 700 percent.

“All I needed was a couple of references, a job and a checking account,” Mayberry said.

Payday lenders also provide other financial services. Customers go to these locations to cash checks, to send funds to various international locations and to pay bills by turning cash into checks.

The lingering loophole

The three major fast-cash lenders operating in Minnesota — Payday America, Ace Cash Express and Unloan — have dominated the state’s payday lending market for years. Together they made more than $10 million in 2011. Payday America — the largest of all — earned about $6 million that year.

None of them is licensed by the state as a payday lender.

Instead, all three are licensed as Industrial Loan and Thrift operations — a designation created decades ago by the Legislature. Initially the designation was not intended to apply to payday loans, but now it is used as a loophole enabling lenders to offer larger loans and charge higher rates to Minnesotans.

Small loan data for Minnesota provided by Minnesota Department of Commerce.

To understand that distinction, you have to go back to 1995 when the Legislature moved to minimize payday lending in the state.

It created the Consumer Small Loan Lender Act, which regulated payday lending, capping the maximum amount of an individual loan to $350. Interest also was to be limited.

“But the payday lenders are able to exploit it and are able to dodge the regulation that Minnesota decided it wants on payday lending by getting out from under the payday lending statute,” said Rep. Jim Davnie, DFL-Minneapolis.

“It’s very problematic,” Davnie said. “It’s perfectly legal and an abuse of the legal system at the same time.”

Companies operating as Industrial Loan and Thrifts don’t have the same statutory cap on the size of loans they can offer. Under that license, for example, Payday America offers loans of $1,000. And so, the state’s three leading small-loan providers switched to Industrial Loan and Thrift licenses.

“Why would a payday lender not want to have that license?” said Tapper at UnBank. “Just your flexibility and what you can do is much greater with an Industrial Loan and Thrift license than it was with a small-loan license.”

Apparently, the shift was profitable. In 2011, the top five industrial loan companies issued 247,213 loans totaling $98.7 million. Among them, Payday America, Unloan and Ace Minnesota earned about $6 million, $3.3 million and $1 million respectively from 2011 operations, according to their reports to the Commerce Dept.

Meanwhile, none of the companies that chose to do business licensed under the more restrictive Consumer Small Loan Lender Act has cracked the top five of Minnesota’s payday lenders in terms of earnings.

In short, the shift to the Loan and Thrift designation enabled short-term, high-interest lending to thrive in Minnesota even though the state moved to limit payday lending – and while many other states outright banned the business.

Secret in plain sight

Consumers can’t decipher between those under the payday lending act and those using the loophole.

Still, the loophole is no secret to policy makers.

In recent years, some legislators have tried — and failed — to eliminate the loophole. In 2008, a group of DFL lawmakers pushed legislation to eliminate the loophole and rein in payday lenders or ban them completely.

One bill — introduced by Davnie and Sen. Sandy Pappas, DFL-St. Paul — would have placed all payday lenders under the original 1995 payday lending act and closed the loophole that allows for Industrial Loan and Thrifts. 

A second -- introduced by Rep. Steve Simon, DFL-St. Louis Park, and Sen. Linda Higgins, DFL-Minneapolis -- would have limited interest rates for all loans in Minnesota to a 36 percent Annual Percentage Rate (APR) and allowed for borrowers to pay back loans incrementally — something not currently offered by lenders.

Neither bill made real headway. And nothing similar has been passed since.

Regulation proponents did manage to pass legislation in 2009 that tightened reporting requirements for payday lenders. The bill also prohibited aggressive debt collection tactics by payday lenders.

Local face of payday lending

The failed bills were vigorously opposed by the owner and CEO of Payday America, Brad Rixmann. Testifying in 2008, he told a legislative committee that proposed regulations would push him out of business and force borrowers who depend on his services to “turn to illegal and unregulated sources of ready cash.”

Rixmann is the local face of payday lending. He declined to be interviewed for this story. His company is the small-loan subset of the larger Pawn America. With at least 15 locations in Minnesota, Payday America is the biggest payday lending company in the state.

Rixmann has donated increasingly to Minnesota political campaigns, giving more than $150,000 in 2011 and 2012 for state and federal races. His company also registers lobbyists to work on issues at the state level, according to the Minnesota Campaign Finance and Public Disclosure Board. Although he’s contributed to both Republican and Democratic campaigns, the majority of donations head to Republicans.

In his testimony, Rixmann said the regulations in place were effective and that Minnesota has stronger restrictions on payday than neighboring states like Wisconsin and the Dakotas.

“The few number of defaults and complaints indicate that the current legislative and regulatory system is working,” Rixmann said.

‘Suckered into a trap’

However, advocates for the legislation called the short-term consumer loan business predatory. Consumer advocates worry that these lending practices harm borrowers, alleviating financial problems only briefly and prolonging deeper dependence on easy but costly cash.

“By definition, [payday borrowers] are the most vulnerable, financially vulnerable, in our society,” said Ron Elwood, a St. Paul-based attorney who has lobbied extensively for tighter regulations on payday loans. “And then you keep stripping assets away and it makes it virtually impossible for anybody to stay even, let alone get ahead.”

Indeed, complaints sent to the state Commerce Department indicate that some borrowers eventually are caught in a loan trap where they are hounded for payments that have snowballed far beyond their financial reach.

“They called me many times at home . . . and my cell phone,” complained a borrower from Hopkins who fell behind on payday loans, including one from Cash Central, a Utah-based company that is licensed to lend in Minnesota. (Commerce officials withheld names and other personal information on the complaints MinnPost obtained through a request under the Minnesota Data Practices Act.)

The Hopkins borrower said that after he took out the Cash Central loan he lost hours at a part-time retail job and couldn’t keep up with payments.

“I have to[o] many loans outstanding,” he said. “It is very sad that this has to happen to me, but I got suckered into a trap.”

One reason payday lending thrives is that it attracts people in Minnesota’s fastest growing population: minorities and the poor – people who often are shut off from mainstream banking for one reason or another.

Increasingly, though, Minnesotans with access to mainstream banks also are tempted to borrow through products very similar to payday loans, high cost included. The next installment of this series will report on that controversial development.

Comments (9)

  1. Submitted by Ray Schoch on 01/28/2013 - 07:47 am.

    Looks like both

    This doesn’t strike me as an “either-or” kind of issue. There likely IS a need for short-term loans, especially among those low-income folks living close to the financial edge. At the same time, the “service” being provided is certainly a rip-off at the very least, given the astronomical interest rates. The main difference between one of these “payday” lenders and a New Jersey Mafia boss is that – hopefully – the payday lender doesn’t send out thugs to break your knees if you miss a payment. Limits on interest rates and doing away with the legal loophole that affects the size of the loan that can be made both seem like good ideas.

  2. Submitted by Greg Kapphahn on 01/28/2013 - 08:33 am.

    I Can’t Help But Wonder

    How many of these “payday loan” customers have deserted regular banks after having one or two experiences of accidental overdrafts costing them hundreds of dollars in fees, or realizing that an inadvertent overdraft here or there is costing them hundreds of dollars a year.

    It only takes one or two such events before your local bank is unwilling to lend you a nickel, even short term.

    The attraction of the payday loan folks may very well be that, at least with them, you know what the terms are up front (at least it seems simple as long as you pay it off each month).

    But regulation IS necessary, and the longer the legislature waits to enact it, the harder it will be since this “racket” is growing so profitable that larger banks are starting to move into it, too, and as we well know, THEY have the political connections and clout to prevent legislation from ever being enacted.

  3. Submitted by Rachel Kahler on 01/28/2013 - 09:21 am.

    If you want to know whether pay day loans are predatory, take a look in states that allow video gaming. Drive through any major town in those states and identify the video casinos. Then look to find where the pay day loan services are. Often, you’ll find them adjacent one another with clusters of both in lower income areas. Coincidence? I think not. Take a look at the area that surrounds such establishments–they’re always the worst-looking area in the general vicinity. If either of these places were to provide some benefit, you’d think that wouldn’t be the case. Sadly, the proof is in the pudding.

    I know of two family members who have used pay day loans. The result was to turn a poor financial situation into a desperate one.

  4. Submitted by Andrew Richner on 01/28/2013 - 09:22 am.


    A good general overview of this topic supported by facts and citations can be found in Chapter VII (which starts on page 58) of this document: and I would recommend the entire manual as well. When you look closely at this issue you see how being too impoverished to get a bank account is deliberately like quicksand. The harder you try to get out (for example, by utility and rent payments on time, by getting a job respectable enough to pay you a check instead of just cash), the more you get sucked further into poverty by predatory short-term loans and check cashing services. In some places you can’t even utilize the social safety-net (e.g. welfare, food stamps) without engaging with these businesses.

  5. Submitted by Jim Wells on 01/28/2013 - 08:28 pm.

    Time to Stop Using Myths to Criticize Payday Advances

    It is truly mind-numbing to hear pseudo-intellectuals parrot the same old myths about payday advances year after year, despite their lack of truth. First, payday advance companies are thriving because banks refuse to make $200 loans to their depositors in violation of the Community Reinvestment Act mandating that banks serve the credit needs of communities where they source deposits. Yet payday advance companies get criticized for filling this gap whilst banks get a free pass in denying credit to their customers.

    Second, applying an annual percentage rate on a two-week loan is sheer lunacy. It is about as helpful as being quoted a rate of $73,000 a year for a hotel room instead of $200 a night.

    Third, payday advances do not trap vulnerable consumers in a viscous cycle. The vulnerable consumers are already in that cycle when they walk into the store. And their financial condition was aggravated by their banks’ refusals to give them loans. The majority of payday advance users simply need temporary help making ends meet, or meeting an unexpected life event.

    Lastly, the growth of non-bank financial intermediaries such as check cashing outlets, community currency exchanges, payday advance companies, pawn brokers and the like is a direct reflection of consumers’ growing dissatisfaction with banks. The FDIC’s most recent survey of unbanked and underbanked households shows that both groups continue to grow. In addition, over 800,000 depositors left the banking industry between 2009 and 2011. Interestingly, a substantial portion of these “debanked” consumers appears to have substituted prepaid cards for bank accounts.

    If consumers were really as unhappy about payday advance companies and other money service businesses as consumer activists claim, they would have ceased to exist long ago.

    • Submitted by Andrew Richner on 01/29/2013 - 09:06 am.

      Myths and Fallacy

      First, that banks can’t or won’t make the kinds of loans that payday advance companies make does not necessarily mean that payday advance loans are all around a good thing. “Filling a gap in the market” has no inherent moral consequences nor does it in any way require that that gap be filled in ways that are not exploitative. Criticizing payday advance companies for what they do does not necessarily mean that banks get a free pass. I’d be just as happy to see an article on predatory bank practices in regards to debt on MinnPost as well.

      Your next two points are made coherent by your assertion that the “majority of payday advance users simply need temporary help.” A 2011 study by the Center for Responsible Lending ( ) found that “the typical payday borrower remains in payday loan debt for 212 days of the year.” (or more precisely that “85 percent of borrowers are indebted for 345 days … in the first 18 months [since first borrowing].”) To go further than that, asserting that most payday advance users only or mostly borrow temporarily denies the reliance in the industry on “churn,” a practice which, regardless of the actual figures (which are staggeringly high), should give pause to anyone trying to justify the morality of the business.

      Given that those 85% are indebted for 345 out of the first year and a half of their doing business with payday loan companies, applying an APR is appropriate (not lunacy). If you were living in that $200/night hotel room for more than half the year, it WOULD make sense to compare the rate to yearly rent.

      And just as “filling a gap” doesn’t necessarily entail ethical lending practices, growth in customer base or revenue does not imply that the standard lending practices across the industry meet the same standard of fairness as a loan from a bank does. There are myriad reasons why a person might choose to or have to “leave the banking industry,” (some which were particularly widespread in the time period you cite) but that does not imply that fringe financial products are in any way preferred or superior since the products offered are, as you say, not comparable to what is currently offered to bank customers (a prepaid card is only superficially similar to a debit or credit card and are given an air of credibility by the Visa and MasterCard logos that appear on them). Similarly, the fact that the customer base is growing does not also mean that the market doesn’t engage in deceptive marketing practices or gloss over the more unsavory aspects of the agreements their consumers make.

      Your final assertion that unhappy consumers would necessarily mean the end of these businesses is also flawed. You may contest the actual number of consumers who fall into this category, but at the very least there are SOME payday loan customers who take on these loans in order to buy basic necessities and who also have no realistic means of paying them back. The existence of this sub-section alone is enough to keep payday loan companies in particular and alternative financial services companies in general in business. So long as a steady proportion of society remains unable to make ends meet through traditional means, alternative finance will survive, regardless of how happy its customers are about it. People generally don’t choose to need more money than they can get anywhere else, though.

  6. Submitted by Dennis Ringstad on 01/28/2013 - 09:28 pm.

    Modern day slavery.

    Minnesota legislators (DFL) should use this as a cue to increase the minimum wage to a livable level. The income inequality gap in our country and state is unethical. The top 1% who perpetuate the need for this gap by bribing legislators are sociopaths who should be institutionalized.

  7. Submitted by Steve Scott on 08/19/2013 - 05:43 pm.

    Most cases of something banned from a store, it’s an individual, product or behavior that’s considered an annoyance. However, that list now involves cents, prohibited from a Vermont sporting goods shop, for being an irritation in the backside. Pay for your next sports supplies with a cash advance.

  8. Submitted by on 11/28/2013 - 12:31 am.

    pay day loans

    Usually people who availed this high interest pay day loans do not have any choice. Due to unexpected utility bills, they might come up with pay day loans. As a matter of fact, there are cases that after moving to new place, being late on your initial electricity bill is pretty bad. It sets the pace for the rest of the cash. You may end up with a two hundred dollar bill rather than the fifty dollars you were used to. This could be really hard and unpredicted, and also you might even need an installment payday loan to make the repayment. Get more info at

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