United States Court of Appeals,
美国上诉法院，

Ninth Circuit.
第九巡回法庭

Tirso del JUNCO, Walter L. Rasic, Andres Alonzo, Jr., C. V. Holder, Martin Castillo, Grace C. Quinn, Antonio E. Valle, Gilbert R. Vasques, Hal W. Brown, Jr., Petitioners-Appellants,
沃尔特·蒂尔索·德尔琼科小安德烈斯·阿隆索·拉西奇，C.放大图片作者：Martin Castillo，Grace C.作者声明：E.瓦莱，吉尔伯特 R. Vasques，Hal W. 小布朗，请愿人-上诉人，

v.
诉

C. T. CONOVER,[FN*] Comptroller of the Currency, Office of the Comptroller of the Currency, Department of the Treasury, Respondents-Appellees.
C. t. CONOVER [FN *]货币监理署，货币监理署，财政部，被告-被上诉人。

FN* Pursuant to Fed.R.App.P. 43(c), C. T. Conover is substituted for Charles E. Lord as Comptroller of the Currency.
FN * 根据联邦共和国应用程序第 43（c）页，C.t. 科诺菲尔取代了查尔斯 E。 主作为货币监理官。

No. 81-7466.
号81-7466.

Argued and Submitted May 5, 1982.
1982年5月5日提出并提交。

Decided July 30, 1982.
1982年7月30日决定。

Petition was filed for review of order of the Comptroller of the Currency. The Court of Appeals, Fletcher, Circuit Judge, held that: (1) substantial evidence supported Comptroller's finding that proceeds of loan made by bank to treasurer of a corporation were used for benefit of the corporation in violation of lending limit imposed by statute, (2) remedial measures required by the Comptroller were appropriate to correct conditions resulting from bank directors' violation of lending limits.
已提出申请，要求审查货币监理署的命令。上诉法院的巡回法官弗莱彻认为：（1）有大量证据支持审计长的调查结果，即银行向公司财务主管提供的贷款收益被用于公司的利益，违反了法规规定的贷款限额;（2）审计长要求采取的补救措施是适当的，以纠正银行董事违反贷款限额所造成的状况。

Affirmed.
确认

West Headnotes
西 Headnotes

[1] Administrative Law and Procedure 15A
[1]行政法与程序 15 A

15A Administrative Law and Procedure
15 A 行政法和程序

     15AV Judicial Review of Administrative Decisions
    15 AV 行政决定的司法审查

           15AV(E) Particular Questions, Review of
          15 AV（E） 特殊问题，审查

               15Ak784 Fact Questions
              15AK784 事实问题

                     15Ak791 k. Substantial evidence. Most Cited Cases
15AK                    791k.证据确凿最常被引用的案例

A “substantial evidence” standard applies to judicial review of administrative findings. 5 U.S.C.A. § 706(2)(E)
“实质性证据”标准适用于对行政调查结果的司法审查。5 美国加利福尼亚州第 706（2）（E）条.

[2] Banks and Banking 52
[2]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k235 k. Regulation and supervision in general. Most Cited Cases
          52k235k.一般的管理和监督。 最常被引用的案例

The Comptroller of the Currency has broad discretion to fashion a remedy for violation of bank laws.
货币监理署署长有广泛的酌处权，可以对违反银行法的行为采取补救措施。

[3] Banks and Banking 52
[3]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k235 k. Regulation and supervision in general. Most Cited Cases
          52k235k.一般的管理和监督。 最常被引用的案例

In reviewing order actually issued by the Comptroller of the Currency for alleged violation of legal lending limit of bank, the Court of Appeals was to consider whether affirmative action taken by the Comptroller was appropriate to correct condition resulting from banking directors' alleged violation of banking laws. National Bank Act, 12 U.S.C.A. § 84
在审查货币审计长就据称违反银行法律的贷款限额而实际发布的命令时，上诉法院要考虑审计长采取的肯定行动是否适合纠正因银行董事据称违反银行法而造成的状况。《美国法典》第 12 卷《国家银行法 》§ 84.

[4] Banks and Banking 52
[4]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k235 k. Regulation and supervision in general. Most Cited Cases
          52k235k.一般的管理和监督。 最常被引用的案例

Substantial evidence supported finding of the Comptroller of the Currency that proceeds of a loan made by bank to treasurer of corporation were used for the benefit of corporation and could be aggregated with the corporation's other loans thereby establishing a violation of bank's lending limit. National Bank Act, 12 U.S.C.A. § 84
大量证据支持货币监理署的调查结果，即银行向公司财务主管提供的贷款收益被用于公司的利益，可以与公司的其他贷款合并，从而确定违反了银行的贷款限额。《美国法典》第 12 卷《国家银行法 》§ 84.

[5] Banks and Banking 52
[5]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k235 k. Regulation and supervision in general. Most Cited Cases
          52k235k.一般的管理和监督。 最常被引用的案例

Directors of national bank operate in an area closely regulated by federal law and cannot maintain ignorance of the law as a defense.
国家银行的董事们在一个受联邦法律密切监管的领域运作，不能以不了解法律为辩护理由。

[6] Banks and Banking 52
[6]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k252 Rights and Liabilities of Officers
          52K252 高级职员的权利和责任

               52k253 k. Nature and extent. Most Cited Cases
              52k253k.性质和范围。 最常被引用的案例

Where bank directors had knowledge of identity of borrowers, knowledge that all loan proceeds were to be used by one company, and knowledge of loan amounts and bank's loan limits, directors knowingly violated bank lending requirements. National Bank Act, 12 U.S.C.A. §§ 84, 93
如果银行董事知道借款人的身份，知道所有贷款收益将由一家公司使用，并知道贷款数额和银行的贷款限额，董事就故意违反了银行的贷款要求。《美国法典》第 12 卷《国家银行法 》第 84、93 条.

[7] Banks and Banking 52
[7]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k252 Rights and Liabilities of Officers
          52K252 高级职员的权利和责任

               52k253 k. Nature and extent. Most Cited Cases
              52k253k.性质和范围。 最常被引用的案例

In light of the Comptroller of the Currency's broad discretion to fashion an appropriate remedy, Comptroller could properly require that bank directors' potential liability for violation of bank's legal lending limits not be reduced by recoveries until legal loan had been repaid with interest. National Bank Act, 12 U.S.C.A. § 84
鉴于货币审计长在制定适当补救措施方面拥有广泛的自由裁量权，审计长可以适当地要求银行董事因违反银行法律的贷款限额而承担的潜在责任不得因追偿而减少，直到法律的贷款已连本带利偿还。《美国法典》第 12 卷《国家银行法 》§ 84.

[8] Banks and Banking 52
[8]银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k252 Rights and Liabilities of Officers
          52K252 高级职员的权利和责任

               52k253 k. Nature and extent. Most Cited Cases
              52k253k.性质和范围。 最常被引用的案例

The remedy for correcting conditions resulting from bank directors' violation of legal lending limits properly included collection expenses on illegal loans and attorneys' fees paid by bank on behalf of directors. National Bank Act, 12 U.S.C.A. § 84; Fe deral Deposit Insurance Act, § 2[8] (b)(1), 12 U.S.C.A. § 1818(b)(1)
纠正因银行董事违反法律的贷款限制而造成的情况的补救办法适当地包括收取非法贷款的费用和银行代表董事支付的律师费。《美国法典》第 12 卷《国家银行法 》§ 84;《 联邦存款保险法》，§ 2[8]（B）（1），12 U.S.C.A.第 1818（B）（1）条.

[9] Administrative Law and Procedure 15A
[9]行政法与程序 15 A

15A Administrative Law and Procedure
15 A 行政法和程序

     15AIV Powers and Proceedings of Administrative Agencies, Officers and Agents
    15 AIV 行政机关、官员和代理人的权力和程序

           15AIV(C) Rules, Regulations, and Other Policymaking
          15 AIV（C） 规则、法规和其他决策

               15Ak428 Administrative Construction of Statutes
              15AK 428 法规的行政解释

                     15Ak438 Particular Statutes and Contexts
                    15AK 438 特殊法规和背景

                         15Ak438(20) k. Trade or business. Most Cited Cases
15Ak438                        （20）k.贸易或商业。 最常被引用的案例

     (Formerly 361k219(6.1), 361k219(6))
（前称 361k219（6.1）、361k219（6））

Banks and Banking 52
银行与金融52

52 Banks and Banking
52 银行与金融

     52IV National Banks
    52IV 国家银行

           52k235 k. Regulation and supervision in general. Most Cited Cases
          52k235k.一般的管理和监督。 最常被引用的案例

     (Formerly 361k219(6.1), 361k219(6))
（前称 361k219（6.1）、361k219（6））

Deference is due to Comptroller of Currency's interpretation of law under which he operates.
尊重是由于货币监理署署长对他所依据的法律的解释。

*1339 Patrick McAdam, Iverson, Yoakum, Papiano & Hatch, Los Angeles, Cal., for petitioners-appellants.
*1339 帕特里克麦克亚当，艾弗森，尤库姆， 帕皮亚诺 &哈奇，洛杉矶，加利福尼亚州，申请人-上诉人

Howard Neil Cayne, Arlington, Va., for respondents-appellees.
弗吉尼亚州阿灵顿的霍华德尼尔凯恩，对于被上诉人。

Petition for Review of an Order of the Comptroller of the Currency.
请求审查货币监理官的命令。

Before FLETCHER, PREGERSON and REINHARDT, Circuit Judges.
在巡回法官弗莱彻、 普雷格森和莱因哈特面前。

FLETCHER, Circuit Judge:
弗莱彻，巡回法官：

In December 1979, a periodic examination by the Comptroller of the Currency (“Comptroller”) of the Los Angeles National Bank (“Bank”) disclosed a possible violation of the provisions of 12 U.S.C. s 84. Section 84 limits the amount that a bank can lend to a single borrower to 10% of the bank's capital stock.[FN1] At issue was whether three of the Bank's loans were really to the same entity and whether, when added together, they exceeded the bank's legal lending limit.
1979 年 12 月，洛杉矶国家银行（“银行”）的货币审计长（“审计长”）进行的定期检查发现，该银行可能违反了《美国法典》第 12 编的规定 。s 84. 第 84 条规定，银行向单个借款人发放贷款的额度不得超过银行股本的 10%。[FN1] 争论的焦点是，世行的三笔贷款是否真的是给同一个实体的，以及这些贷款加在一起是否超过了世行的法律的贷款限额。

FN1. 12 U.S.C. s 84 provides in pertinent part:
FN1。12 U.S.C.第 84 条有关部分规定：

The total obligations to any national banking association of any person, copartnership, association, or corporation shall at no time exceed 10 per centum of the amount of the capital stock of such association actually paid in and unimpaired and 10 per centum of its unimpaired surplus fund.
任何个人、合伙企业、协会或公司对任何全国性银行协会的全部债务，在任何时候都不得超过该协会实际缴入且未减损的股本金额的 10%，以及其未减损盈余资金的 10%。

The loans were to Rehbock Lewis (“Lewis”), President of Fame Furniture Co., Inc.; Fame Furniture Co., Inc. (“Fame”); and Ralph Ware (“Ware”), Treasurer of Fame. The chart below sets forth the date, borrower, and amount of each loan, as well as the legal lending limit of the bank at the time of each loan and the amount by which the loans, when aggregated, exceeded the legal lending limit: [FN2]
这些贷款是给名人家具公司总裁刘易斯（“刘易斯”）的，公司;佛山市顺德区金丰家具有限公司 Inc.”（《明史》），《资治通鉴》，《资治通鉴》。下表列出了每笔贷款的日期、借款人和金额，以及每笔贷款发放时银行的法律的贷款限额，以及贷款总额超过法律的贷款限额的金额：

FN2. The amount of the bank's legal lending limit is not an issue in this case.
FN 2。 在这种情况下，银行的法律的贷款限额不是问题。

The legality of the Lewis loan for $225,000 has never been at issue, as that loan did not exceed the legal lending limit of the bank when it was made. However, if the Lewis, Fame, and Ware loans could be aggregated, then the latter two loans would exceed the Bank's lending limit.
刘易斯22.5万美元贷款的合法性从来没有争议，因为这笔贷款在发放时没有超过银行的法律的贷款限额。然而，如果刘易斯、法梅和韦尔的贷款可以加在一起，那么后两笔贷款将超过银行的贷款限额。

The Comptroller first requested the Directors of the Bank to indemnify the Bank for any losses sustained as a result of the two excess loans; the Directors refused. The Comptroller then began a formal cease and desist action against the Directors and the Bank by issuing a Notice of Charges. The Bank and Directors answered, and the Comptroller moved for summary judgment in an agency proceeding.
主计长首先要求银行董事赔偿银行因两笔超额贷款而遭受的任何损失;董事拒绝了。 然后，主计长发出一份收费通知，开始对董事和银行采取正式的停止和终止行动。银行和董事们作出了答复，审计长提议在机关诉讼程序中作出即决判决。

In the agency proceeding, the Bank and Directors admitted that they knew that the proceeds of the Fame and Lewis loans were to be used for the benefit of Fame. On these facts, the Administrative Law Judge (ALJ) ruled that it was proper to aggregate the Lewis and Fame loans so as to constitute a violation of 12 U.S.C. s 84. He also ruled, however, that an evidentiary hearing would be necessary to determine whether the proceeds of the Ware loan were actually used for the benefit of Fame, an element that had to be satisfied if the Ware loan could be added to the Fame loan. Such an evidentiary hearing was then held, and the ALJ determined that the Ware loan was used for the benefit of Fame. Accordingly, the ALJ recommended that the Comptroller issue a cease and desist order, that the Directors indemnify the Bank for the Fame and Ware loans, that the Bank recover costs of collection fees, and that the Bank recover *1340 attorneys' fees that it had paid for the Directors' defense.
在代理诉讼中，银行和董事承认，他们知道 Fame 和刘易斯贷款的收益将用于 Fame 的利益。根据这些事实，行政法法官（ALJ）裁定，将刘易斯和名声贷款合并在一起，构成违反《 美国法典》第 12 条的行为是适当的。s 84.然而，他还裁定，有必要举行证据听证会，以确定威尔贷款的收益是否实际上是用于名人堂的利益，如果威尔贷款可以加入名人堂贷款，这一因素必须得到满足。这样一个证据听证会随后举行，行政法法官确定，威尔贷款是用于名人堂的利益。 因此，行政法法官建议主计长发出停止令，董事们就 Fame and Ware 贷款向银行作出赔偿，银行收回收款费，并收回为董事们辩护而支付的律师费。

Although the Comptroller agreed with the ALJ's findings, he disagreed as to the proper construction of section 84 with regard to reducing the Directors' liability. Both the Comptroller and the ALJ agreed that the potential liability of the Directors equalled $350,000, the sum of the two excess loans. The ALJ would have permitted the Directors to reduce their liability of $350,000 by offsetting a checking account of Fame and by selling bonds assigned as security to the Ware loan. The Comptroller, however, concluded that the Directors' potential $350,000 liability could not be reduced by the Bank's recoveries until the legal but unsecured Lewis loan had been fully repaid with interest.[FN3]
虽然主计长同意行政法法官的调查结果，但他不同意第 84 条关于减轻董事责任的适当解释。主计长和行政法法官都同意，董事的潜在责任相当于 350 000 美元，即两笔超额贷款的总和。行政法法官将允许董事们通过抵消 Fame 的支票账户和出售作为 Ware 贷款担保的债券来减少 35 万美元的债务。然而，主计长的结论是，在法律的但无担保的刘易斯贷款连本带息全部偿还之前，世行的收回不能减少董事们潜在的 350 000 美元债务。[FN3]

FN3.
FN3。 The Comptroller calculated the Directors' actual liability to the Bank as follows: the Bank had at the time of the hearing collected a total of $332,292 on the total $575,000 line of credit extended for the benefit of Fame. Therefore, for the sole purpose of calculating director liability the Comptroller applied these recoveries first to the reduction of the $225,000 legal loan to
主计长计算了董事对银行的实际负债如下：在听证会时，银行为 Fame 提供的 575 000 美元信贷额度中共收取了 332 292 美元。因此，为了计算董事责任的唯一目的，主计长首先将这些收回的款项用于减少 225 000 美元的法律的贷款，Rehbock
埃克塞特博克 Lewis. This left $107,292 to be applied to the reduction of the Directors' potential $350,000 liability on the two illegal Fame-related loans. Thus the Comptroller determined that the Directors were liable to the Bank in the principal amount of $242,708. The Comptroller also found that the Directors were liable for interest lost by the Bank on the two illegal loans in the amount of $71,598.56. Consequently, the Comptroller calculated the
刘易斯。这留下了107 292美元用于减少董事对两笔与名誉有关的非法贷款的潜在350 000美元负债。因此，主计长确定，董事们应向银行偿还本金242 708美元。主计长还发现，董事们应对银行因两笔非法贷款而损失的71 598.56美元的利息负责。因此，主计长计算了Directors' actual total liability to the Bank to be equal to $314,306. The Comptroller also held that once the Directors have indemnified the Bank for this amount, the Directors and not the Bank are to receive the benefit of any additional recoveries made on the Fame-related loans. In order to effectuate this result, Article III of the Comptroller's order to cease and desist requires the Bank to transfer all remaining interest or rights that it may have in the Fame-related loans to the Directors after such time as the Directors have complied with Article II's indemnification requirement.
董事对银行的实际负债总额为 314 306 美元。主计长还认为，一旦董事向银行支付了这笔款项，董事而不是银行将获得就与 Fame 有关的贷款收回的任何额外款项的好处。为了实现这一结果，主计长的停止和终止命令第三条要求银行在董事遵守第二条的赔偿要求之后，将其在与 Fame 有关的贷款中可能拥有的所有剩余权益或权利转让给董事。

The Directors then moved this court to stay the Comptroller's final judgment. This court denied the motion without prejudice. Next, the Directors filed an identical motion with the Comptroller, who denied the motion. The Directors now appeal the final judgment of the Comptroller.
然后，董事们请求法院暂缓执行主计长的最后判决。本法院无偏见地驳回了该动议。接着，董事们向主计长提出了同样的动议，主计长驳回了该动议。董事们现在对主计长的最后判决提出上诉。

ISSUES
问题

1. What is the proper standard for reviewing the Comptroller's fashioning of a remedy?
1.审查审计长补救措施的适当标准是什么？

2. Did substantial evidence support the Comptroller's finding that the proceeds of the loan made by the Bank to Ware were used for the benefit of Fame in violation of the lending limit imposed by 12 U.S.C. s 84?
2.是否有实质性的证据支持审计长的调查结果，即银行向 Ware 提供的贷款收益被用于 Fame 的利益，违反了 12 U.S.C. s 84？

3. Were the remedial measures required by the Comptroller appropriate to correct conditions resulting from the Directors' violation of 12 U.S.C. s 84?
3.审计长要求采取的补救措施是否适当，以纠正董事违反《美国法典》第 12 条所造成的状况 ？s 84？

I. STANDARD OF REVIEW.
I.审查标准。

[1] The parties agree that a “substantial evidence” standard applies to judicial review of administrative findings. The parties are correct. See 5 U.S.C. s 706(2)(E)
[1] 双方同意，“实质性证据”标准适用于对行政裁决的司法审查。各方都是正确的。见 《美国法典》第 5 条。第 706（2）（E）条.

[2] The Comptroller has broad discretion to fashion a remedy. See Groos National Bank v. Comptroller of Currency, 573 F.2d 889, 897 (5th Cir. 1978). “Substantial evidence is required for the Comptroller's findings, but once the Comptroller finds a violation he may, within his allowable discretion, fashion relief in such a form as to prevent future abuses.” Id. Similarly, he has broad discretion to cure the effect of a violation.
[2] 主计长有广泛的酌处权来制定补救措施。参见 Groos National Bank v. Comptroller of Currency，573 F.2d 889，897（5th Cir. 1978 年）。“主计长的调查结果需要大量证据，但一旦主计长发现违规行为，他可以在其允许的酌处权范围内，以防止未来滥用的形式采取补救措施。同样，他有广泛的自由裁量权来纠正违规行为的影响。

[3] In reviewing the order that actually issued, we consider whether the affirmative action taken by the Comptroller was appropriate to correct the condition resulting from the Directors' violation of the banking laws.[FN4]
[3] 在审查实际发出的命令时，我们考虑主计长采取的肯定行动是否适当，以纠正董事违反银行法所造成的状况。[FN4]

FN4. The statutory grant of authority that allows the Comptroller to issue an order to cease and desist from a violation or practice states in part:
FN 4。 允许主计长发布命令停止和终止违法行为或做法的法定授权部分规定：

Such order may, by provisions which may be mandatory or otherwise, require the bank or its directors, officers, employees, agents, and other persons participating in the conduct of the affairs of such bank to cease and desist from the same, and, further, to take affirmative action to correct the conditions resulting from any such violation or practice.
此种命令可通过强制性或其他规定，要求银行或其董事、高级职员、雇员、代理人和参与银行事务的其他人停止和终止上述行为，并采取积极行动纠正任何此类违规行为或做法所造成的状况。

12 U.S.C. s 1818(b)(1)
12 U.S.C.第 1818（B）（1）条.

*1341 II. THE COMPTROLLER'S FINDING IS SUPPORTED BY SUBSTANTIAL EVIDENCE THAT THE PROCEEDS OF THE LOAN MADE BY THE BANK TO WARE WERE USED FOR THE BENEFIT OF FAME IN VIOLATION OF THE LENDING LIMIT OF 12 U.S.C. s 84
*1341II.主计长的调查结果得到实质性证据的证实，即银行向 WARE 提供的贷款的收益被用于名誉利益，违反了 12 U.S.C. S 84.

[4] The regulation that implements the lending statute provides that “(o) bligations of a corporation must be combined with any other extension of credit the proceeds of which are used for the benefit of the corporation.” 12 C.F.R. s 7.1310(c)(3) (1981) (emphasis added). The issue presented by this regulation is whether there was substantial evidence to support a finding that the $125,000 loan to Ware, the Treasurer of Fame, was “used for the benefit of the corporation.”
[4] 实施借贷法规的条例规定，“ 公司的债务必须与收益用于公司利益的任何其他信贷扩展相结合”。12 CFR 第 7.1310（c）（3）（1981）条（着重部分由作者标明）。这项规定提出的问题是，是否有实质性的证据支持一项调查结果，即向名人堂财务主管威尔提供的 12.5 万美元贷款是“用于公司的利益”。

The Comptroller found:
主计长认为：

The hearing record clearly discloses the purpose and use of proceeds of the Ware loan. Mr. Ware, Fame's treasurer, testified that Fame's checking account at another bank was overdrawn. Accordingly, he and Mr. Lewis, Fame's president, went to the Bank to procure another loan. The Bank's vice president and senior lending officer, Mr. Jewett, informed Lewis and Ware that the Bank could not make an additional loan to Fame or to Mr. Lewis without violating the Bank's legal lending limit. Therefore, Mr. Ware's “name was used for the loan papers to borrow the money.” Hearing Transcript 50-51. As agreed, the Bank put the Ware loan proceeds directly into Fame's corporate checking account. Hearing Transcript 51-52. See also Hearing Transcript 179-80, wherein Mr. Jewett testified that he knew the proceeds were “going to go through Mr. Ware to Fame.” On these facts, the Comptroller agrees with the ALJ's finding and conclusion that the deposit of the Ware loan proceeds directly into Fame's corporate checking account shows that the proceeds were used for the benefit of Fame.
听证会记录清楚地披露了 Ware 贷款的目的和用途。威尔先生，名声的财务主管，作证说，名声的支票帐户在另一家银行透支。因此，他和 Fame 的总裁刘易斯先生一起去银行申请另一笔贷款。银行副总裁兼高级贷款官员朱厄特先生通知刘易斯和威尔，银行不能在不违反银行法律的贷款限额的情况下向名声或刘易斯先生提供额外贷款。因此，韦尔先生的“名字被用于贷款文件，以借钱。”50-51.第 51 章我的天按照约定，银行将威尔的贷款收益直接存入名声的公司支票账户。51-52.第 51 话另见听证会记录 179-80，其中朱厄特先生作证说，他知道收益“将通过先生。 “为名声而战”。在这些事实上，主计长同意行政法法官的调查结果和结论，即 Ware 贷款收益的存款直接存入 Fame 的公司支票账户，表明这些收益是为 Fame 的利益使用的。

The evidence of the corporation's overdrawn account, the corporation's search for another loan, the action and knowledge of the Bank's lending officer, and the deposit of the loan proceeds directly into Fame's account is substantial enough to support the Comptroller's finding.
公司透支账户的证据、公司寻求另一笔贷款的证据、银行贷款官员的行动和知情情况以及贷款收益直接存入 Fame 账户的存款的证据足以支持审计长的调查结果。

Thus, because sufficient evidence supported the finding that the Ware loan was for the benefit of Fame, that loan could be aggregated with other Fame loans to calculate whether an excess loan had been made.
因此，由于有足够的证据支持韦尔的贷款是为了 Fame 的利益，因此可以将这笔贷款与 Fame 的其他贷款合并，以计算是否有超额贷款。

III. THE REMEDIAL MEASURES REQUIRED BY THE COMPTROLLER WERE APPROPRIATE TO CORRECT CONDITIONS RESULTING FROM THE DIRECTORS' VIOLATION OF 12 U.S.C. s 84
三.审计员要求的补救措施适用于纠正董事违反 12 U.S.C. S 84.

The Directors attack the remedy sought by the Comptroller in Article II of the cease and desist order.[FN5] The Directors argue that (a) indemnification is an improper remedy because the Directors did not “knowingly violate” the banking laws; (b) if indemnification is a proper remedy, then the Directors must be allowed to reduce their liability on the illegal loans by offsetting a checking account and selling collateral, even though the legal unsecured loan remains unpaid; (c) the Comptroller lacks authority to order that collection and attorneys' fees be paid to the Bank.
董事们抨击主计长在停止令第二条中寻求的补救办法。[FN 5] 董事们认为，（a）赔偿是一种不适当的补救办法，因为董事们并没有“故意违反”银行法;（B）如果赔偿是一种适当的补救办法，则必须允许董事们通过抵消支票账户和出售抵押品来减少其对非法贷款的责任，即使法律的无担保贷款仍未偿还;（c）主计长无权命令向银行支付收款和律师费。

FN5. The provisions of Article II are summarized: (1) The Directors, with some exceptions, must indemnify the Bank for lost principal and interest on the Fame and Ware loans; (2) The Directors must indemnify the Bank for attorneys' fees; (3) The Directors must indemnify the Bank for its efforts to collect the Fame and Ware loans.
FN5。 第二条的规定概述如下：（1）除某些例外情况外，董事必须赔偿银行因 Fame and Ware 贷款而损失的本金和利息;（2）董事必须赔偿银行的律师费;（3）董事必须赔偿银行为收取 Fame and Ware 贷款所作的努力。

A. The Directors Knowingly Violated the Lending Requirements of 12 U.S.C. s 84
a.董事故意违反 12 U.S.C.S 84.

In the past, violations of the excess lending rule in 12 U.S.C. s 84 (1976) have been enforced through district court proceedings made possible by 12 U.S.C. s 93 (1976 & Supp. IV 1980). Section 93, which is derived from the National Bank Act of 1864, imposes liability on directors for knowingly violating or knowingly permitting violations*1342 of the banking laws. Here, however, the Comptroller, in an enforcement proceeding, is seeking to indemnify the Bank through the application of 12 U.S.C. s 1818(b)(1) (Supp. IV 1980). [FN6] Although in effect since 1950, section 1818(b)(1) was significantly amended in 1978 to extend the coverage of cease and desist orders, which had previously applied only to a bank, to include a bank's directors. On its face, s 1818(b)(1) requires no knowledge on the part of the wrongdoer. The provision simply allows the Comptroller “to take affirmative action to correct the conditions resulting from any such violation or practice.”
在过去，违反超额贷款规则在 12 个美国 C。第 84 条（1976 年） 已经通过地区法院的诉讼程序得到执行，12 U.S.C.第 93 条（1976 年补编）1980 年）。 第 93 条源自 1864 年的《国家银行法》，规定了董事明知违反或明知允许违反银行法 *1342 的责任。然而，在这里，主计长在执行程序中寻求通过适用 12 U.S.C. s 1818（B）（1）（ 补充 。1980 年）。 虽然自 1950 年起生效，但第 1818（B）（1）条于 1978 年进行了重大修订，扩大了以前仅适用于银行的停止令的范围，将银行董事也包括在内。从表面上看， 第 1818（B）（1）条不要求不法行为人知情。该条款只是允许审计长“采取肯定行动，纠正任何此类违法行为或做法造成的状况”。

FN6. See note 4, supra.
FN6。 见上文注 4。

Defendants argue, however, that 12 U.S.C. s 1818(b) imports the scienter requirement of s 93 when the Comptroller seeks to impose personal liability on bank directors for exceeding bank lending limits. We need not and do not resolve that question today. Even if the “knowingly” standard of 12 U.S.C. s 93 applies to an 1818(b) enforcement proceeding, we agree with the Comptroller that defendants are liable here.
然而，被告人辩称，12 U.S.C.第 1818（B） 条引入了第 93 条的科学要求 ，即主计长寻求对银行董事超出银行贷款限额的行为施加个人责任。我们今天不需要也不会解决这个问题。即使“故意”的标准 12 美国法典。第 93 条适用于 1818（B）强制执行程序，我们同意主计长的意见，即被告在此负有责任。

The Supreme Court has enunciated the scienter requirement of s 93
最高法院已经阐明了第 93 条的科学要求:

Under the rule settled by familiar decisions of this court, in order for the Bank to prevail in this action it must appear not only that the liabilities of a person, company, firms, etc., to the Bank for money borrowed were permitted to exceed the prescribed limit, but that defendant, while a director, participated in or assented to the excessive loan or loans not through mere negligence but knowingly and in effect intentionally ... with this qualification, that if he deliberately refrained from investigating that which it was his duty to investigate, any resulting violation of the statute must be regarded as “in effect intentional,” ....
根据本法院熟悉的判决所确定的规则，为了使银行在这一诉讼中获胜，不仅必须证明个人、公司、商号等的责任，向银行借款的金额被允许超过规定的限额，但被告作为董事，参与或同意过度贷款或贷款，而不仅仅是由于疏忽，而是故意和实际上故意.根据这一条件，如果他故意不调查他有责任调查的事情，任何由此造成的违反规约的行为必须被视为“实际上是故意的”，.。

Corsicana National Bank v. Johnson, 251 U.S. 68, 71-72, 40 S.Ct. 82, 84, 64 L.Ed. 141 (1919) (citations omitted).
“科西嘉国家银行诉约翰逊案”，载于《美国最高法院判例汇编》第 251 卷，第 68 页，第 71-72 页，《最高法院判例汇编》第 40 卷。82，84，64 L.Ed. 141（1919）（引文省略）.

[5][6] The Directors had knowledge of the identity of the borrowers, knowledge that all the loan proceeds were to be used by one company, and knowledge of the loan amounts and the bank's loan limits. The defendants have maintained that, because the loans were made on separate occasions, they failed to aggregate the loans. However, 12 U.S.C. s 84 requires the aggregation of loans to a single entity. Directors of a national bank operate in an area closely regulated by federal law, and cannot maintain ignorance of the law as a defense.[FN7] Cf. United States v. Corbin Farm Service, 444 F.Supp. 510, 519 (E.D.Cal.), aff'd, 578 F.2d 259 (9th Cir. 1978) (word “knowingly” in penalty section of federal pesticides act refers to awareness of facts, not awareness of law).
[5][6] 董事们知道借款人的身份，知道所有贷款收益将由一家公司使用，并知道贷款金额和银行的贷款限额。被告坚称，由于贷款是在不同情况下作出的，他们未能将贷款合并。然而，12 U.S.C.第 84 条要求将贷款汇总到一个实体。国家银行的董事们在一个受联邦法律严格监管的领域运作，不能以不了解法律为由进行辩护。[FN7] 参见参见 United States v. Corbin Farm Service，444 F.Supp. 510，519（E.D.Cal.），aff'd，578 F.2d 259（9th Cir. 1978 年）（《联邦农药法》处罚部分中的“故意”一词是指对事实的认识，而不是对法律的认识）。

FN7. Indeed, defendants concede in their opening brief: “Appellants' (sic) are not claiming ignorance of the law as a defense.”
FN7 事实上，被告在他们的开场陈述中承认：“上诉人（原文如此）并没有声称对法律的无知作为辩护。”

Since the scienter requirement of s 93 has been satisfied, whatever requirement s 1818(b) may have imported from s 93 has also been satisfied.
既然第 93 条的科学要求已经得到满足，那么第 1818（B）条可能从第 93 条引入的任何要求也已经得到满足。

B. The Comptroller Can Properly Require that the Directors' Potential Liability of $350,000 Not Be Reduced by Recoveries Until the Legal Loan to Lewis has been Repaid with Interest.
B。主计长可以适当地要求董事的潜在责任 35 万美元不减少收回，直到法律的贷款刘易斯已偿还利息。

[7] The Directors' potential liability is limited to $350,000-the difference between the total credit extension to Fame ($575,000) and the amount of the legal Lewis loan ($225,000).[FN8] The Comptroller takes the position that the Directors' potential loss of $350,000 cannot be reduced by recoveries *1343 until the legal loan to Lewis has been repaid with interest.
[7] 董事们的潜在责任限制在 350，000 美元--这是给 Fame 的总信贷延期（575，000 美元）和法律的刘易斯贷款（225，000 美元）之间的差额。[FN 8] 主计长的立场是，在向刘易斯提供的法律的贷款连本带息偿还之前，董事的潜在损失 350，000 美元不能通过收回款项 *1343 来减少 。

FN8. The Directors argue that their liability should be reduced as the Fame and Ware loans are extinguished. The Ware loan has been extinguished by the sale of bonds held as collateral and the Fame loan has been reduced by the offset of Fame's checking account. The Comptroller concedes that, as to the relationship between the Bank and the borrower, collateral can be used to reduce only the loan to which the collateral was assigned. However, the Comptroller reasons that the legal principles governing offsets and the sale of collateral to pay off a loan need not apply to the relation between the Bank and its Directors in determining the Directors' liability.
FN8。 董事认为，由于 Fame and Ware 贷款已注销，彼等之负债应减少。威尔的贷款已经被作为抵押品持有的债券的销售所消灭，而名声的贷款已经被名声的支票账户的抵消所减少。主计长承认，关于世界银行与借款人之间的关系，抵押品只能用于减少抵押品所转让的贷款。然而，主计长认为，在确定董事责任时，关于抵消和销售抵押品以偿还贷款的法律的原则不一定适用于银行与其董事之间的关系。

In the instant case, the purpose underlying 12 U.S.C. s 84-protection of a bank's assets-will be furthered if the Directors are not allowed to extinguish their liability until the legal Lewis loan, which is unsecured, is fully repaid.[FN9] The policy of protecting bank assets would be frustrated if the Directors were allowed to make, as they did, an unsecured but legal loan to the borrower, then to use, or agree to the use of, the borrower's assets to secure further credit extensions that are illegal. Such a procedure would permit the Directors to protect themselves fully against any exposure resulting from the illegal loans while substantially increasing the risk that the bank would be unable to recover the amount of its legal loan. The fiduciary responsibility of the Directors of the bank precludes them from protecting themselves against liability at the bank's expense. The security arrangement was in derogation of that responsibility. Thus, the Directors may not use the borrower's assets to extinguish their own liability to the bank.
在本案中，12 U.S.C.如果在法律的刘易斯贷款（无担保）全部偿还之前，不允许董事终止其责任，则第 84 条--保护银行的资产--将得到进一步加强。[FN 9] 如果董事被允许向借款人提供无抵押但法律的贷款，然后使用或同意使用借款人的资产来确保进一步的非法信贷扩展，则保护银行资产的政策将受到挫折。该程序可使董事充分保护自己免受非法贷款所带来的任何风险，同时大大增加银行无法收回其法律的贷款的风险。银行董事的信托责任使他们不能保护自己免受银行的损失。 安全安排减损了这一责任。因此，董事不得使用借款人的资产来消除其对银行的债务。

FN9. The initial Loan Credit Report stated that the Lewis loan was to be secured “from receivables of Co. and/or sale of bonds.” The bonds were actually used, however, to secure the illegal Ware loan rather than the legal Lewis loan.
FN9。 最初的贷款信用报告指出，刘易斯的贷款将以“公司的应收款和/或债券的销售”作为担保。然而 ，这些债券实际上是用来担保非法的韦尔贷款，而不是法律的刘易斯贷款。

Here, the Directors ignored the recommendation of the Comptroller and the bank president's advice that the first loan to be paid off should be that of Rehbock Lewis and not Fame Furniture, since the stockholders might claim that this loan was paid to limit the liabilities of the Directors. The Comptroller's remedy is appropriate, because any other remedy could create a conflict of interest between the Bank and its Directors.
在这一点上，董事们无视主计长的建议和银行行长的意见，即第一笔偿还的贷款应该是给 Alberbock 刘易斯的，而不是给 Fame Furniture 的，因为股东可能会声称，支付这笔贷款是为了限制董事们的债务。主计长的补救办法是适当的，因为任何其他补救办法都可能在银行与其董事之间造成利益冲突。

In light of the Comptroller's broad discretion to fashion an appropriate remedy, we conclude that the remedy he selected was lawful. It serves to protect the bank's assets, to insure that the Directors fulfill their fiduciary duty, and to prevent the Directors from insuring themselves against liability for their wrongful act at the Bank's expense.
鉴于主计长在制定适当补救措施方面拥有广泛的酌处权，我们得出结论，他选择的补救措施是合法的。它的作用是保护银行的资产，确保董事履行其受托责任，并防止董事为自己的错误行为投保，而银行为此承担费用。

C. The Remedy for Correcting Conditions Resulting from the Directors' Violation of Section 84 Properly Includes Collection Expenses on the Illegal Loans and Attorneys' Fees Paid by the Bank on Behalf of the Directors.
C.纠正董事违反第 84 条所导致的情况的补救措施适当地包括银行代表董事支付的非法贷款的收款费用和律师费。

[8] The Directors argue that the Comptroller is not authorized to award the Bank collection expenses and attorneys' fees paid by the Bank on behalf of the Directors. The Comptroller responds that he is authorized by 12 U.S.C. s 1818(b)(1) to take affirmative action to correct conditions resulting from the Directors' violation of the banking laws. Obviously the Comptroller has interpreted the Bank's collection expenses and attorneys' fees paid on behalf of the Directors as “conditions resulting” from the violation of 12 U.S.C. s 84
[8] 董事们辩称，主计长无权裁定银行代表董事支付的收款费用和律师费。审计长回应说，他是由 12 U.S.C.授权的。第 1818（B）（1）条采取积极行动，纠正因董事违反银行法而造成的状况。显然，审计长已将银行代表董事支付的收款费用和律师费解释为违反《美国法典》第 12 条的“后果”。S 84.

The Directors argue that the collection expenses are not a condition resulting from the violation of the law: “There is no evidence that but for these loans being excessive they would not have become delinquent.” That argument is meritless. If the Directors had acted within the law, the excess loans would never have been made, and the problem of collection would never have arisen.
董事们辩称，收取费用不是违法行为造成的一个条件：“没有证据表明，如果不是这些贷款过多，他们就不会拖欠。这一论点毫无根据。如果董事在法律范围内行事，超额贷款就不会发放，也不会出现收款问题。

[9] The Directors also argue, relying on Greene County Planning Board v. Federal Power Commission, 455 F.2d 412 (2d Cir.), cert. denied, 409 U.S. 849, 93 S.Ct. 56, 34 L.Ed.2d 90 (1972), that the Comptroller lacks authorization to grant attorneys' fees absent a specific congressional mandate to do so. Greene, however, dealt with the power of a district court to grant attorneys' fees to third-party intervenors who sued under the National Environmental Policy Act and demanded attorneys' fees. While the power of the court to grant attorneys' fees to private parties in a suit is carefully circumscribed, that situation is entirely different from the one at bar. In the instant case, the Bank is not a third-party intervenor*1344 and is not demanding attorneys' fees. It is the Comptroller who has ordered the award to make the Bank whole for losses resulting from the Directors' violation of the banking laws. Deference is due to the Comptroller's interpretation of the law under which he operates, and he has interpreted “affirmative action to correct conditions resulting” from the Directors' violation of 12 U.S.C. s 84 to cover an award of attorneys' fees.
[9] 董事们还主张，依靠格林县规划委员会诉联邦电力委员会，455 F.2d 412（2d Cir.）。，cert.拒绝，409 U.S. 849，93 S.C. 56，34 L.Ed.2d 90（1972），审计长缺乏授权，批准律师费没有具体的国会授权这样做。然而，格林处理的是地区法院向根据《国家环境政策法》提起诉讼并要求支付律师费的第三方干预者支付律师费的权力。虽然法院在诉讼中向私人当事人支付律师费的权力受到了严格的限制，但这种情况与酒吧的情况完全不同。在本案中，银行不是第三方干预者 *1344，也没有要求律师费。 是审计长下令赔偿银行因董事违反银行法而造成的损失。尊重是由于审计长对他所依据的法律的解释，他解释了“纠正董事违反《美国法典》第 12 条所造成的情况的肯定行动”。第 84 条支付律师费。

CONCLUSION
结论

The Comptroller's decision and final order to cease and desist are affirmed. Substantial evidence supported the Comptroller's finding that the three loans could be aggregated as loans to a single business. Furthermore, the Comptroller, in fashioning a remedy, acted within the scope of his authority to correct conditions resulting from the Directors' violation of the banking laws.
确认主计长关于停止和终止的决定和最后命令。有大量证据支持主计长的结论，即这三笔贷款可以合并为对一家企业的贷款。此外，主计长在制定补救办法时，在其职权范围内采取行动，纠正董事违反银行法所造成的状况。

C.A.9, 1982.
C.A.9，1982 年。

del Junco v. Conover
del Junco 诉科诺菲尔案

682 F.2d 1338

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