חומר רקע
תאריך: 24.12.2018
הנדון: הערות איגוד הבנקים להצעת חוק שירותי תשלום, התשע"ח-2018
בהמשך לדיון שהתקיים בכנסת בקשר לסעיף 19(ו) להצעת חוק שירותי תשלום, התשע"ח-2018, להלן הערות אגוד הבנקים בנושא זה:
לשון סעיף 19(ו) בנוסחו הקיים, עלולה להתפרש כמטילה אחריות מוחלטת על נותני שירותי תשלום – ללא הגבלה על גובה הפיצוי, ללא הבחנה בין סוגי לקוחות וללא הבחנה בין נזקים ישירים לנזקים עקיפים. ודוק – מדובר בהסדר תקדימי, שלא נמצאה לו מקבילה בדין הישראלי הכללי ולא בדין הצרכני בפרט, ואף, ניכר כי מדובר בהסדר חריג גם ביחס להסדרים רלוונטיים דומים בדין הזר.
הגדרת "לקוח" תוך הבחנה בין צרכן ללקוח עסקי ומתן אפשרות להתנות חוזית על הוראות הסעיף ביחס ללקוחות "עסקיים" – נבקש להגדיר "לקוח" בהתאם לעקרונות המקובלים בדיני הגנת הצרכן, אשר מבחינים בין לקוחות צרכניים (לקוחות שמקבלים שירותי תשלום למטרה אישית, ביתית או משפחתית) שהחוק מבקש להעניק להם הגנה מוגברת, לבין לקוחות אחרים (שאינם לקוחות צרכניים) שאינם זקוקים להגנה מיוחדות. עוד נבקש, לאפשר לספק שירותי התשלום, להתנות חוזית על תחולת הוראות סעיף 19(ו) כלפי אותם לקוחות עסקיים, שאינם צרכניים.
אחריותם של נותני שירותי תשלום אינה אחריות מוחלטת – נבקש להבהיר כי משטר האחריות יהיה בהתאם לקבוע במערכת הדינים הכללית והמבחנים המקובלים להטלת חבות על פי דיני הנזיקין, ולא משטר של אחריות מוחלטת.
לחלופין, נבקש להגביל את חבות נותני שירותי התשלום בתקרה מירבית ביחס לנזקים שאינם נזקים ישירים; נזקים של אובדן רווח/הזדמנות או נזקים שהינם בגדר "נזקים כלכליים טהורים". לכל הפחות, אין לחייב נותן שירותי תשלום שאינו אחראי לפגם בעסקת התשלום, בגין נזקים שאינם נזקים ישירים.
קביעת תקופת התיישנות – נבקש לקבוע תקופת התיישנות קצרה יותר מאשר תקופת ההתיישנות שקבועה בדין הכללי, ולהעמידה על 13 חודשים, זאת, בדומה להסדר הקבוע בדירקטיבה האירופאית.
תחולה טריטוריאלית – נבקש לקבוע כי במקרים בהם חלק מעסקת התשלום בוצע מחוץ לישראל, לא יחולו הוראות סעיף 19 זאת בדומה להגבלות על תחולה טריטוריאלית שאומצו בדירקטיבה האירופאית ויישומה בדין האנגלי.
הענקת הגנה למי שהוכיח כי אינו אחראי לפגם והפנה את הלקוח לאחראי – נבקש להעניק הגנה לנותן שירותי תשלום שהוכיח כי אינו אחראי לפגם שנפל, והפנה את הלקוח לנותן שירותי התשלום האחראי תוך ציון שמו ומענו של האחראי ("הגורם המפנה"), זאת, בכפוף לכף שבמידה ויתברר שהגורם המפנה טעה, הוא יהיה אחראי בגין ההוצאות שנגרמו ללקוחו עקב טעותו, זאת בדומה להסדר הקיים בסעיף 6 לחוק הגנת הצרכן.
פירוט של הסדרים חלופיים בדין הישראלי ובדין הזר מצורפים כנספח א ו-נספח ב למכתב זה
נספח א
דין ישראלי (ההדגשות הוספו):
חוק הגנת הצרכן, תשמ"א-1981 קובע שלל הסדרים שבמסגרתם מוטלת אחריות מוגברת על ה"עוסק". עם זאת, כל ההסדרים שקבועים בחוק כוללים אי אילו הגנות לעוסקים, זאת כאמור, בניגוד להוראת הסעיף הנדון שקובע משטר אחריות מוחלטת ללא תחימת נזק וללא הגנות כלשהן.
"צרכן" מוגדר בחוק:
מי שקונה נכס או מקבל שירות מעוסק במהלך עיסוקו לשימוש שעיקרו אישי, ביתי או משפחתי
ראו סעיף אחריות להטעיה באריזה:
(א) היתה הטעיה בעיצוב הנכס או באריזתו, על גבי האריזה או במצורף לה, יראו גם את היצרן, היבואן, האורז והמעצב כמפירים את הוראות סעיף 2.
(ב) בתובענה בשל עוולה לפי סעיף זה תהא ליצרן, ליבואן, לאורז ולמעצב הגנה אם הוכיח שלא הוא אחראי להטעיה אלא פלוני שנקב בשמו ובמענו.
חוק שירותי תעופה (פיצוי וסיוע בשל ביטול טיסה או שינוי בתנאיה), תשע"ב-2012 מטיל אחריות יתרה על מפעיל טיסה ומארגן, עם זאת מעמיד להם מספר הגנות:
אחריות מפעיל טיסה ומארגן:
"יראו מפעיל טיסה או מארגן שהנוסע מקבל ממנו שירות, אף אם אין בינו ובין הנוסע הסכם, כמי שמבצע מטעם מי שהנוסע התקשר עמו בהסכם את החובות המוטלות לפי חוק זה."
"...נוסע שטיסתו בוטלה לא יהיה זכאי לפיצוי כספי כאמור בתוספת הראשונה, אם מפעיל הטיסה או המארגן הוכיח כי התקיים אחד מאלה:
(1) הטיסה בוטלה בשל נסיבות מיוחדות שלא היו בשליטתו, וגם אם היה עושה כל אשר ביכולתו – לא היה יכול למנוע את ביטולה בשל אותן נסיבות;
(2) הטיסה בוטלה בשל שביתה או השבתה מוגנות;
(3) הטיסה בוטלה כדי להימנע מחילול שבת או חג..."
חוק האחריות למוצרים פגומים, תש"ם-1980, מטיל אחריות על היצרן לפצות את מי שנגרם לו נזק גוף כתוצאה מפגם במוצר שייצר בלי נפקות לעצם האחריות שלו בפגם:
"יצרן חייב לפצות את מי שנגרם לו נזק גוף כתוצאה מפגם במוצר שייצר (להלן - הנפגע), ואין נפקא מינה אם היה או לא היה אשם מצד היצרן"
"... פיצויים לפי חוק זה בשל נזק שאינו נזק ממון לא יעלו על חמישים אלף שקלים..."
חוק ניירות ערך, תשכ"ח-1968 מטיל אחריות על כל מי שחתום על תשקיף, בגין נזקים שנגרמו למשקיעים בניירות ערך עקב פרט מטעה. עם זאת, החוק מספק מספר הגנות:
"מי שחתם על תשקיף לפי סעיף 22 אחראי כלפי מי שרכש ניירות ערך במסגרת המכירה על פי התשקיף, וכלפי מי שמכר או רכש ניירות ערך תוך כדי המסחר בבורסה או מחוצה לה, לנזק שנגרם להם מחמת שהיה בתשקיף פרט מטעה..."
"על מי שהוכיח שנקט כל האמצעים הנאותים כדי להבטיח שלא יהיה פרט מטעה בתשקיף, בחוות הדעת, בדו"ח או באישור, הכל לפי הענין, וכי האמין בתום לב שאכן אין בו פרט כזה..."
חוק הבנקאות (שירות ללקוח), תשמ"א-1981 קובעת במסגרת סעיף 15:
דין נזק שנגרם לאדם על ידי עבירה על הוראות חוק זה, או על כל תקנה שניתנה לפיו, כדין נזק שמותר לתבוע עליו פיצויים על פי פקודת הנזיקין [נוסח חדש], ולענין סעיף זה אין נפקא מינה –
(1) אם הנזק נגרם במישרין או בעקיפין;
(2) אם הנזק הוא בחסרון-כיס או במניעת ריווח;
(3) אם עובר העבירה עמד לדין פלילי ואם לאו;
(4) אם עובר העבירה לא התכוון לגרום את הנזק או לא יכול היה לראותו מראש.
נספח ב
DIRECTIVE (EU) 2015/2366 OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL (Dated 25 November 2015) ("EU DIRECTIVE") & FINANCIAL SERVICES and MARKETS – The Payment Services Regulations 2017 [England]
EU DIRECTIVE:
‘consumer’ means a natural person who, in payment service contracts covered by this Directive, is acting for purposes other than his or her trade, business or profession;
Article 89 [Part III]
"Payment service providers’ liability for non-execution, defective or late execution of payment transactions
1. Where a payment order is initiated directly by the payer, the payer’s payment service provider shall, without prejudice to Article 71, Article 88(2) and (3), and Article 93, be liable to the payer for correct execution of the payment transaction, unless it can prove to the payer and, where relevant, to the payee’s payment service provider that the payee’s payment service provider received the amount of the payment transaction in accordance with Article 83(1). In that case, the payee’s payment service provider shall be liable to the payee for the correct execution of the payment transaction.
Where the payer’s payment service provider is liable under the first subparagraph, it shall, without undue delay, refund to the payer the amount of the non-executed or defective payment transaction, and, where applicable, restore the debited payment account to the state in which it would have been had the defective payment transaction not taken place.
The credit value date for the payer’s payment account shall be no later than the date on which the amount was debited.
Where the payee’s payment service provider is liable under the first subparagraph, it shall immediately place the amount of the payment transaction at the payee’s disposal and, where applicable, credit the corresponding amount to the payee’s payment account.
The credit value date for the payee’s payment account shall be no later than the date on which the amount would have been value dated, had the transaction been correctly executed in accordance with Article 87.
Where a payment transaction is executed late, the payee’s payment service provider shall ensure, upon the request of the payer’s payment service provider acting on behalf of the payer, that the credit value date for the payee’s payment account is no later than the date the amount would have been value dated had the transaction been correctly executed.
In the case of a non-executed or defectively executed payment transaction where the payment order is initiated by the payer, the payer’s payment service provider shall, regardless of liability under this paragraph, on request, make immediate efforts to trace the payment transaction and notify the payer of the outcome. This shall be free of charge for the payer.
2. Where a payment order is initiated by or through the payee, the payee’s payment service provider shall, without prejudice to Article 71, Article 88(2) and (3), and Article 93, be liable to the payee for correct transmission of the payment order to the payment service provider of the payer in accordance with Article 83(3). Where the payee’s payment service provider is liable under this subparagraph, it shall immediately re-transmit the payment order in question to the payment service provider of the payer.
In the case of a late transmission of the payment order, the amount shall be value dated on the payee’s payment account no later than the date the amount would have been value dated had the transaction been correctly executed.
In addition, the payment service provider of the payee shall, without prejudice to Article 71, Article 88(2) and (3), and Article 93, be liable to the payee for handling the payment transaction in accordance with its obligations under Article 87. Where the payee’s payment service provider is liable under this subparagraph, it shall ensure that the amount of the payment transaction is at the payee’s disposal immediately after that amount is credited to the payee’s payment service provider’s account. The amount shall be value dated on the payee’s payment account no later than the date the amount would have been value dated had the transaction been correctly executed.EN L 337/102 Official Journal of the European Union 23.12.2015
In the case of a non-executed or defectively executed payment transaction for which the payee’s payment service provider is not liable under the first and second subparagraphs, the payer’s payment service provider shall be liable to the payer. Where the payer’s payment service provider is so liable he shall, as appropriate and without undue delay, refund to the payer the amount of the non-executed or defective payment transaction and restore the debited payment account to the state in which it would have been had the defective payment transaction not taken place. The credit value date for the payer’s payment account shall be no later than the date the amount was debited.
The obligation under the fourth subparagraph shall not apply to the payer’s payment service provider where the payer’s payment service provider proves that the payee’s payment service provider has received the amount of the payment transaction, even if execution of payment transaction is merely delayed. If so, the payee’s payment service provider shall value date the amount on the payee’s payment account no later than the date the amount would have been value dated had it been executed correctly.
In the case of a non-executed or defectively executed payment transaction where the payment order is initiated by or through the payee, the payee’s payment service provider shall, regardless of liability under this paragraph, on request, make immediate efforts to trace the payment transaction and notify the payee of the outcome. This shall be free of charge for the payee.
3. In addition, payment service providers shall be liable to their respective payment service users for any charges for which they are responsible, and for any interest to which the payment service user is subject as a consequence of non- execution or defective, including late, execution of the payment transaction.
Article 2
Scope
"1. This Directive applies to payment services provided within the Union.
2. Titles III and IV apply to payment transactions in the currency of a Member State where both the payer’s payment service provider and the payee’s payment service provider are, or the sole payment service provider in the payment transaction is, located within the Union
3. Title III, except for point (b) of Article 45(1), point (2)(e) of Article 52 and point (a) of Article 56, and Title IV, except for Articles 81 to 86, apply to payment transactions in a currency that is not the currency of a Member State where both the payer’s payment service provider and the payee’s payment service provider are, or the sole payment service provider in the payment transaction is, located within the Union, in respect to those parts of the payments transaction which are carried out in the Union..".
4. Title III, except for point (b) of Article 45(1), point (2)(e) of Article 52, point (5)(g) of Article 52 and point (a) of Article 56, and Title IV, except for Article 62(2) and (4), Articles 76, 77, 81, 83(1), 89 and 92, apply to payment transactions in all currencies where only one of the payment service providers is located within the Union, in respect to those parts of the payments transaction which are carried out in the Union…"
Article 61
Where the payment service user is not a consumer, the payment service user and the payment service provider may agree that Article 62(1), Article 64(3), and Articles 72, 74, 76, 77, 80 and 89 do not apply in whole or in part. The payment service user and the payment service provider may also agree on time limits that are different from those laid down in Article 71.
Article 71
Notification and rectification of unauthorised or incorrectly executed payment transactions
1.The payment service user shall obtain rectification of an unauthorised or incorrectly executed payment transaction from the payment service provider only if the payment service user notifies the payment service provider without undue delay on becoming aware of any such transaction giving rise to a claim, including that under Article 89, and no later than 13 months after the debit date"
FINANCIAL SERVICES and MARKETS – The Payment Services Regulations 2017 [England]
“consumer” means an individual who, in contracts for payment services to which these Regulations apply, is acting for purposes other than a trade, business or profession"
Non-execution or defective or late execution of payment transactions initiated by the payer [Part 7]
91.—(1) This regulation applies where a payment order is initiated directly by the payer.
(2) The payer’s payment service provider is liable to the payer for the correct execution of the
payment transaction unless it can prove to the payer and, where relevant, to the payee’s payment
service provider, that the payee’s payment service provider received the amount of the payment
transaction in accordance with regulation 86(1) to (3) (payment transactions to a payment
account).
(3) Where the payer’s payment service provider is liable under paragraph (2), it must without
undue delay refund to the payer the amount of the non-executed or defective payment transaction
and, where applicable, restore the debited payment account to the state in which it would have
been had the defective payment transaction not taken place.
(4) The credit value date for a credit under paragraph (3) must be no later than the date on which
the amount was debited.
(5) If the payer’s payment service provider proves that the payee’s payment service provider
received the amount of the payment transaction in accordance with regulation 86, the payee’s
payment service provider is liable to the payee for the correct execution of the payment transaction
and must—
(a) immediately make available the amount of the payment transaction to the payee; and
(b) where applicable, credit the corresponding amount to the payee’s payment account.
(6) The credit value date for a credit under paragraph (5)(b) must be no later than the date on
which the amount would have been value dated if the transaction had been executed correctly.
(7) Where a payment transaction is executed late, the payee’s payment service provider must, on
receipt of a request from the payer’s payment service provider on behalf of the payer, ensure that
the credit value date for the payee’s payment account is no later than the date the amount would
have been value dated if the transaction had been executed correctly.
(8) Regardless of liability under this regulation, the payer’s payment service provider must, on
request by the payer, immediately and without charge—
(a) make efforts to trace any non-executed or defectively executed payment transaction; and
(b) notify the payer of the outcome.
Non-execution or defective or late execution of payment transactions initiated by the payee
92.—(1) This regulation applies where a payment order is initiated by the payee.
(2) The payee’s payment service provider is liable to the payee for the correct transmission of
the payment order to the payer’s payment service provider in accordance with regulation 86(5)
(payment transactions to a payment account).
(3) Where the payee’s payment service provider is liable under paragraph (2), it must
immediately re-transmit the payment order in question to the payer’s payment service provider.
(4) The payee’s payment service provider must also ensure that the transaction is handled in
accordance with regulation 89 (value date and availability of funds), such that the amount of the
transaction—
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(a) is at the payee’s disposal immediately after it is credited to the payee’s payment service
provider’s account; and
(b) is value dated on the payee’s payment account no later than the date the amount would
have been value dated if the transaction had been executed correctly.
(5) The payee’s payment service provider must, on request by the payee and free of charge,
make immediate efforts to trace the payment transaction and notify the payee of the outcome.
(6) Subject to paragraph (8), if the payee’s payment service provider proves to the payee and,
where relevant, to the payer’s payment service provider, that it is not liable under paragraph (2) in
respect of a non-executed or defectively executed payment transaction, the payer’s payment
service provider is liable to the payer and must, as appropriate and immediately—
(a) refund to the payer the amount of the payment transaction; and
(b) restore the debited payment account to the state in which it would have been had the
defective payment transaction not taken place.
(7) The credit value date for a credit under paragraph (6)(b) must be no later than the date on
which the amount was debited.
(8) If the payer’s payment service provider proves that the payee’s service provider has received
the amount of the payment transaction, paragraph (6) does not apply and the payee’s payment
service provider must value date the amount on the payee’s payment account no later than the date
the amount would have been value dated if the transaction had been executed correctly.
Non-execution or defective or late execution of payment transactions initiated through a
payment initiation service
93.—(1) This regulation applies where a payment order is initiated by the payer through a payment initiation service.
(2) The account servicing payment service provider must refund to the payer the amount of the
non-executed or defective payment transaction and, where applicable, restore the debited payment
account to the state in which it would have been had the defective payment transaction not taken
place.
(3) Paragraph (4) applies if the payment initiation service provider does not prove to the account
servicing payment service provider that—
(a) the payment order was received by the payer’s account servicing payment service
provider in accordance with regulation 81 (receipt of payment orders); and
(b) within the payment initiation service provider’s sphere of influence the payment
transaction was authenticated, accurately recorded and not affected by a technical
breakdown or other deficiency linked to the non-execution, defective or late execution of
the transaction.
(4) On request from the account servicing payment service provider, the payment initiation
service provider must immediately compensate the account servicing payment service provider for
the losses incurred or sums paid as a result of the refund to the payer.
Liability of payment service provider for charges and interest
94. A payment service provider is liable to its payment service user for—
(a) any charges for which the payment service user is responsible; and
(b) any interest which the payment service user must pay,
as a consequence of the non-execution or defective or late execution of the payment transaction.
Rights and Obligations in Relation to the Provision of Payment Services
Application of Part 7
63.—(1) This Part applies to payment services where—
(a) the services are provided from an establishment maintained by a payment service
provider or its agent in the United Kingdom; and
(b) the services are provided in one of the following circumstances—
(i) the payment service providers of both the payer and the payee are located within the
EEA and the service relates to a transaction in the currency of an EEA State;
(ii) the payment service providers of both the payer and the payee are located within the
EEA and the service relates to a transaction in a currency other than the currency of
an EEA State; or
(iii) the payment service provider of either the payer or the payee, but not both, is located within the EEA.
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(2) In the circumstances mentioned at paragraph (1)(b)(ii)—
(a) this Part applies only in respect of those parts of a transaction which are carried out in the
EEA; and
(b) regulations 84 to 88 (amounts transferred and received and execution time) do not apply.
(3) In the circumstances mentioned at paragraph (1)(b)(iii)—
(a) this Part applies only in respect of those parts of a transaction which are carried out in the EEA; and (b) regulations 66 (2) (responsibility for charges), 79 (refunds for direct debits), 80 (requests for direct debit refunds), 84 (amounts transferred and received), 86(1) to (3) (execution time for transactions to a payment account), 91 (defective execution of payer-initiated transactions), 92 (defective execution of payee-initiated transactions), 94 (liability for charges and interest) and 95 (right of recourse) do not apply.
(4) This Part does not apply to registered account information service providers or EEA
registered account information service providers, except for regulations 70 (access to payment
accounts for account information services), 71(7) to (10) (denial of access to payment accounts),
72(3) (payment service user’s obligation to keep personalised security credentials safe) and 98 to
100 (risk management, incident reporting, authentication and dispute resolution).
(5) Where the payment service user is not a consumer, a micro-enterprise or a charity, the
payment service user and the payment service provider may agree that—
(a) any or all of regulations 66(1) (charges), 67(3) and (4) (withdrawal of consent), 75
(evidence on authentication and execution), 77 (payer or payee’s liability for
unauthorised transactions), 79 (refunds for direct debits), 80 (requests for direct debit
refunds), 83 (revocation of a payment order), 91 (defective execution of payer-initiated
transactions), 92 (defective execution of payee-initiated transactions) and 94 (liability for
charges and interest) do not apply;
(b) a different time period applies for the purposes of regulation 74(1) (notification of
unauthorised or incorrectly executed payment transactions).