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Nature of Suit Code: 360
Nature of Suit: Other Personal Injury
Cause of Action: 

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[PUBLISH]

IN THE UNITED STATES COURT OF APPEALS

FOR THE ELEVENTH CIRCUIT

________________________

No. 18-14490

________________________

D.C. Docket No. 1:17-cv-00253-MW-GRJ

AMANDA LAWSON-ROSS,

TRISTIAN BYRNE, 

 Plaintiffs - Appellants,

versus

GREAT LAKES HIGHER EDUCATION CORPORATION, 

 Defendant - Appellee.

________________________

Appeal from the United States District Court

for the Northern District of Florida

_______________________

(April 10, 2020)

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Before WILLIAM PRYOR and JILL PRYOR, Circuit Judges, and ROBRENO,∗

District Judge.

JILL PRYOR, Circuit Judge: 

Plaintiffs Dr. Amanda Lawson-Ross and Tristian Byrne (the “Borrowers”) 

each took out federal student loans to finance higher education. The Borrowers’ 

federal student loans were serviced by defendant Great Lakes Higher Education 

Corporation. The Borrowers alleged that Great Lakes made affirmative 

misrepresentations to them and other borrowers that they were on track to have 

their student loans forgiven based on their public-service employment when, in 

fact, their loans were ineligible for the forgiveness program. The Borrowers sued 

Great Lakes, bringing a variety of claims under Florida law, including the Florida 

Consumer Collection Practices Act (“FCCPA”), Fla. Stat. § 559.55 et seq. 

The district court ruled that the Borrowers’ claims were preempted by a 

provision of the Higher Education Act of 1965, 20 U.S.C. §§ 1001 et seq.

(“HEA”), which prohibits the application of state law disclosure requirements to 

loans made under federal student loan programs. 20 U.S.C. § 1098g. In this 

appeal, we must decide whether the HEA preempts state law claims alleging that 

student loan servicers made affirmative misrepresentations to borrowers regarding 

their eligibility for a federal program that forgives student loan balances. We hold 

∗ Honorable Eduardo C. Robreno, United States District Judge for the Eastern District of 

Pennsylvania, sitting by designation.

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that the HEA—which expressly preempts state law disclosure requirements—does 

not preempt the Borrowers’ claims here. We therefore vacate the district court’s 

dismissal of the claims and remand for further proceedings. 

I. STUDENT LOAN REGULATION

Congress enacted the HEA, the primary statute governing federal student 

loans, “to keep the college door open to all students of ability, regardless of 

socioeconomic background.” Rowe v. Educ. Credit Mgmt. Corp., 559 F.3d 1028, 

1030 (9th Cir. 2009) (internal quotation marks omitted); see also 20 U.S.C. 

§ 1070(a). To fulfill this goal of improving access to higher education, the HEA 

established the Federal Family Education Loan Program (“FFELP”). See

20 U.S.C. § 1071.

Under the FFELP, lenders used their own funds to make loans, known as 

FFEL loans, to students attending postsecondary institutions. These loans were 

guaranteed by private guarantors and reinsured by the federal government. See id.

§ 1078(a)-(c). Although the federal government did not directly fund these loans, 

it served as the ultimate guarantor of the loans through the reinsurance program.1

 

Lenders for FFEL loans contracted with loan servicing companies to manage 

borrowers’ repayment of the loans. 

1 In 2010, the government stopped reinsuring new FFEL loans. 20 U.S.C. § 1071(d). 

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In time, Congress shifted away from the FFELP to the William D. Ford 

Federal Direct Loan Program. See id. §§ 1087a-1087j. Under this program, the 

federal government itself served as the lender, directly providing the funds for 

student loans. Because the federal government directly provided the funds for 

these loans, they aptly became known as “direct loans.” Id. § 1087a(b)(2). The 

government contracted with non-government entities to service direct loans. 

To encourage student loan recipients to enter and remain employed in public 

service jobs, Congress created the Public Service Loan Forgiveness Program 

(“PSLF” or the “PSLF Program”), to forgive direct loan balances for borrowers 

employed in government or not-for-profit organizations. See College Cost 

Reduction and Access Act, Pub. L. No. 110-84 § 401, 121 Stat. 784, 800 (2007). 

Under the PSLF Program, the federal government forgives outstanding student 

loan balances for borrowers who: (1) made 120 payments on their loan after 

October 1, 2007; (2) made these payments on an eligible direct loan; (3) were on a 

qualifying repayment plan; and (4) were employed in public service at the time of 

the loan forgiveness and had been employed in public service during the period in 

which the 120 payments were made. 20 U.S.C. § 1087e(m)(1). 

A key requirement of the PSLF Program is that the 120 payments must be 

made on an “eligible Federal Direct Loan.” Id. § 1087e(m). Congress defined an 

“eligible Federal Direct Loan” to include “a Federal Direct Stafford Loan, Federal 

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Direct PLUS Loan, or Federal Direct Unsubsidized Stafford Loan, or a Federal 

Direct Consolidation Loan.” Id. § 1087e(m)(3)(A). Borrowers with other types of 

federal student loan debt—including FFEL loans—are ineligible for the PSLF 

Program. Borrowers with FFEL loans are not entirely out of luck, however. They 

may consolidate their loans into a Federal Direct Consolidation Loan to become 

eligible. See id. §§ 1078-3(b)(5); 1087e(m)(3)(A). But any payments they made 

before consolidation do not count toward the 120 payments required for the 

program. 

The HEA also imposes obligations on student loan lenders and loan 

servicers.2

 Most relevant to the Borrowers’ claims here are the requirements that 

lenders and servicers make various disclosures to borrowers. See id. § 1083. 

Although the HEA does not define the term “disclosure,” it specifies the 

information that must be disclosed and when the disclosures must occur. Id.

§ 1083(a)-(b), (e). The HEA mandates disclosures at or during particular points in 

time, including: (1) at or before the disbursement of loan proceeds (19 required 

disclosures); (2) at or before the start of repayment (13 required disclosures); and 

(3) periodically during repayment. See id. § 1083(a)-(b), (e). Certain information 

must be provided with each bill or statement sent to the borrower, including the 

2 Direct loans are subject to the “same terms, conditions, and benefits” as loans issued 

under the FFELP. 20 U.S.C. § 1087e(a)(1).

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original principal amount of the loan, the borrower’s current outstanding loan 

balance, the loan’s interest rate, and the total amount the borrower has paid in 

interest and in the aggregate. Id. § 1083(e)(1). Additional information must be 

disclosed when the borrower either has provided notice that she is having difficulty 

making payments or is 60 days delinquent in making payments. See id.

§ 1083(e)(2)-(3). 

Along with imposing these disclosure requirements, the HEA expressly 

preempts the imposition of state law disclosure requirements. Section 1098g, 

entitled “Exemption from State disclosure requirements,” provides:

Loans made, insured, or guaranteed pursuant to a program authorized 

by Title IV of the [HEA] . . . shall not be subject to any disclosure 

requirements of any State law.

Id. § 1098g. 

II. BACKGROUND

A. Factual Background

Defendant-appellee Great Lakes services the Borrowers’ federal student 

loans. The Borrowers allege that Great Lakes representatives told them they were 

eligible for forgiveness of their loans through the PSLF Program, and only later did 

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they discover they were not eligible—after they had already made payments that 

could not then be counted toward the PSLF Program.3

 

Plaintiff-appellant Lawson-Ross has a master’s degree and a doctoral degree 

in counseling psychology. She borrowed to finance both degrees. The majority of 

her loans were not Federal Direct Loans.4

 Since completing her doctorate, 

Lawson-Ross has been employed at the University of Florida working in its 

Counseling and Wellness Center and also at Florida Gulf Coast University’s 

Counseling and Psychological Services Office. Given this work in public service, 

Lawson-Ross expected that after 10 years of working her student loans would be 

forgiven through the PSLF Program. 

Once she began repaying her student loans in 2007, Lawson-Ross regularly 

contacted Great Lakes to “ensur[e] that she was on track to receive the benefits of 

the PSLF.” Doc. 24 at ¶ 41.5

 During her communications with Great Lakes 

representatives, she inquired about her eligibility for the PSLF Program, and the 

representatives “repeatedly and explicitly” told her that she was “on track to 

3 We describe the facts as alleged in the Borrowers’ complaint. In reviewing the grant of 

a motion to dismiss, we accept the well-pleaded allegations in the complaint as true and view 

them in the light most favorable to the plaintiff. See Chaparro v. Carnival Corp., 693 F.3d 1333, 

1335 (11th Cir. 2012).

4 The complaint did not identify what the type of loans Lawson-Ross had; it alleged only 

that they were not Federal Direct Loans.

5 Citations in the form “Doc. #” refer to the numbered entries on the district court’s 

docket.

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benefit [from] PSLF, that her loans qualified under that program, and that she 

would not need to complete any additional forms until her 10 years of public 

service was completed.” Id. at ¶ 42 (emphasis added). 

In July 2017, however—almost 10 years later—a Great Lakes representative 

told Lawson-Ross that she was ineligible for the PSLF Program. She was 

ineligible because most of her loans were not Federal Direct Loans—the only loans 

eligible for the PSLF Program. As a result, none of the payments she had made 

during those 10 years counted toward the PSLF Program. Had Lawson-Ross 

known that her loans were ineligible for the PSLF Program, she either could have 

made sure she was eligible for forgiveness under the PSLF Program (presumably 

by consolidating her loans) or undertaken a different career path. 

Plaintiff-appellant Byrne graduated with an associate degree in criminal 

justice. She took out FFEL loans to help finance her education. Byrne learned 

about the PSLF Program while working for the Pinellas County Sheriff’s Office. 

When she learned about the program, she reached out to Great Lakes to ask 

whether her job with the sheriff’s office would qualify her for the program. A 

Great Lakes representative informed her that to qualify for the PSLF Program, she 

needed only to work full time in her current job, complete an application, have 

human resources fill out a form certifying her employment, and apply for incomeUSCA11 Case: 18-14490 Date Filed: 04/10/2020 Page: 8 of 31
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based payments. Great Lakes represented that once Byrne had made 120 payments 

on her student loans, the remainder of her loan balance would be forgiven. 

Byrne followed Great Lakes’s instructions. She submitted an application for 

loan forgiveness. After hearing nothing from Great Lakes, she submitted a second 

application. Several months later, Great Lakes told Byrne that she was ineligible 

for the PSLF Program because her loans were not Federal Direct Loans. If Great 

Lakes had not misinformed Byrne, she would have taken the steps necessary to 

ensure that she was eligible for the PSLF Program. 

As a federal student loan servicer, Great Lakes was responsible for 

collecting payments from borrowers, providing borrowers with repayment options, 

managing borrowers’ student loan accounts, and communicating with borrowers 

about their loans. Great Lakes held itself out as an authority for advice about the 

best path to student loan repayment. It did so, the Borrowers alleged, by stating on 

its website, “You should never have to pay for student loan advice or services. 

Call us, instead. Our representatives have access to your latest student loan 

information and are trained to understand all of your options.” Id. at ¶ 29. 

The United States Department of Education (“DOE”) also encouraged 

borrowers to consult their federal loan servicers regarding repayment and options 

for borrowers having trouble making their loan payments. The DOE made 

statements such as: “Work with your loan servicer to choose a federal student 

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repayment plan that’s best for you;” “Your loan servicer will help you decide 

whether one of these plans is right for you;” “Always contact your loan servicer 

immediately if you are having trouble making your student loan payment;” and 

“Why pay for help with your federal student loans when your loan servicer will 

help you for FREE? Contact your servicer to apply for income-driven repayment 

plans, student loan forgiveness, and more.” Id. at ¶ 27. Therefore, the Borrowers 

reasonably looked to Great Lakes for advice about the PSLF Program and relied on 

Great Lakes’s representations. 

B. Procedural History 

The Borrowers filed a complaint against Great Lakes alleging that it 

misrepresented that they were on track to benefit from the PSLF Program when 

they were not and that they were harmed by these misrepresentations. They further 

alleged that Great Lakes had incentives to put its own interests ahead of the 

Borrowers whose loans it serviced so that it could continue to service the loans and 

benefit from the extra principal, fees, and interest that it would not otherwise have 

collected had the Borrowers been given correct information so that they could 

make their loans PSLF-eligible. 

On behalf of a class of similarly situated borrowers, the Borrowers brought 

claims under Florida law for breach of fiduciary duty, negligence, unjust 

enrichment, breach of implied-in-law contract, and violation of the FCCPA. See

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Fla. Stat. § 559.72.6 The Borrowers Lawson-Ross and Byrne alleged that they and 

the other class members spent years making payments that they believed, based on 

Great Lakes’s representations, qualified for the PSLF Program, only to find out 

years later that none of their loan payments counted toward loan forgiveness. 

Great Lakes moved to dismiss the case for failure to state a claim. Among 

other arguments, Great Lakes maintained that the Borrowers’ claims were 

expressly preempted under § 1098g of the HEA. Invoking § 1098g’s explicit 

preemption of “any disclosure requirements of any State law,” 20 U.S.C. § 1098g, 

Great Lakes argued that the Borrowers’ claims were based on alleged failures to 

disclose information. Allowing these state law claims to proceed, they contended, 

would effectively impose additional disclosure requirements, in violation of 

§ 1098g. 

After Great Lakes filed its motion to dismiss, the Secretary of the DOE 

issued a notice outlining the agency’s position regarding federal preemption of 

state law by the HEA. See Federal Preemption and State Regulation of the 

Department of Education’s Federal Student Loans Programs and Federal Student 

Loan Servicers, 83 Fed. Reg. 10619 (Mar. 12, 2018) (the “Notice”). In the Notice, 

the Secretary announced that “Congress intended section 1098g to preempt any 

6 The FCCPA prohibits false representations regarding the character or status of a debt 

and forbids use of deceptive debt collection methods. Fla. Stat. § 559.72. 

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State law requiring lenders to reveal facts or information not required by Federal 

law.” Id. at 10621 (alteration adopted) (internal quotation marks omitted).7

 

According to the Notice, state laws imposing “new prohibitions on 

misrepresentation or the omission of material information” ran afoul of § 1098g’s 

express preemption provision. Id. 

Great Lakes notified the district court that the Notice “squarely addresse[d] 

the preemption issue” in Great Lakes’s favor. Doc. 30 at 3. The district court then 

directed the parties to file supplemental briefs regarding the Notice and whether 

the court should defer to it. 

In its supplemental briefing, Great Lakes again argued that the Borrowers’ 

claims were simply restyled nondisclosure claims that were expressly preempted. 

It further argued that even if the court were to accept that the Borrowers’ claims 

were based on affirmative misrepresentations rather than failures to disclose, the 

claims nevertheless should be dismissed for failure to satisfy the heightened 

pleading standards of Rule 9(b) of the Federal Rules of Civil Procedure. Claims 

based on affirmative misrepresentation, Great Lakes contended, “sound in fraud” 

7 The Notice further explained that it “interprets disclosure requirements under section 

1098g of the HEA to encompass informal or non-written communications to borrowers as well 

as reporting to third parties such as credit reporting bureaus.” Notice, 83 Fed. Reg. at 10621 

(internal quotation marks omitted). 

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and therefore must satisfy the requirements of Rule 9(b). Doc. 34 at 19–21 

(internal quotation marks omitted). 

The district court granted Great Lakes’s motion to dismiss, concluding that 

the Borrowers’ claims were expressly preempted by § 1098g. The court addressed 

only the preemption arguments. It construed Great Lakes’s alleged 

misrepresentations as a “failure to provide accurate information,” or “in other 

words . . . [a] disclosure.” Doc. 44 at 8. Then, looking to Skidmore v. Swift & Co., 

323 U.S. 134 (1944), the district court determined that the DOE’s guidance in the 

Notice was entitled to deference and concluded that the HEA expressly preempted 

the Borrowers’ Florida state law claims and granted the motion to dismiss.8

 The

Borrowers appealed that decision, which we now review. 

III. STANDARD OF REVIEW

We review de novo the district court’s grant of a motion to dismiss for 

failure to state a claim. See Snow v. DirecTV, Inc., 450 F.3d 1314, 1317 (11th Cir. 

2006). We likewise review de novo whether federal law preempts a state law 

claim. Graham v. R.J. Reynolds Tobacco Co., 857 F.3d 1169, 1181 (11th Cir. 

2017) (en banc).

IV. DISCUSSION

8 Because the district court concluded that the Borrowers’ claims were preempted, it did 

not reach the issue of whether the complaints’ allegations otherwise sufficed to state a claim for 

relief. 

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The Constitution’s Supremacy Clause makes federal law “the supreme Law 

of the Land; . . . any Thing in the Constitution or Laws of any State to the Contrary 

notwithstanding.” U.S. Const., art. VI, cl. 2. When applying the Supremacy 

Clause, we begin “with the assumption that the historic police powers of the States 

are not to be superseded by Federal Act unless that is the clear and manifest 

purpose of Congress.” Cipollone v. Liggett Grp., Inc., 505 U.S. 504, 516 (1992) 

(alterations adopted) (internal quotation marks omitted). “The purpose of 

Congress is the ultimate touchstone” of preemption analysis. Retail Clerks Int’l 

Ass’n, Local 1625 v. Schermerhorn, 375 U.S. 96, 103 (1963). In determining 

Congress’s purpose, we look to the “text and structure of the statute at issue.” CSX 

Transp., Inc. v. Easterwood, 507 U.S. 658, 664 (1993). Where Congress legislates 

in a field traditionally occupied by the states, the presumption against preemption 

“applies with particular force.” Altria Grp., Inc. v. Good, 555 U.S. 70, 77 (2008). 

Congress’s intent to preempt state law may be stated expressly in a statute or 

implied by the statute’s structure and purpose. Jones v. Rath Packing Co., 

430 U.S. 519, 525 (1977). Absent express preemption language, congressional

intent to preempt state law will be implied where there is a “conflict with a 

congressional enactment,” Lorillard Tobacco Co. v. Reilly, 533 U.S. 525, 541 

(2001), or where “the scheme of federal regulation is sufficiently comprehensive to 

make reasonable the inference that Congress left no room for supplementary state 

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regulation” in a particular area of law, Hillsborough Cty. v. Automated Med. Labs., 

Inc., 471 U.S. 707, 713 (1985) (internal quotation marks omitted). These forms of 

implied preemption are known as conflict preemption and field preemption, 

respectively. 

In this appeal we confront the question of whether the Borrowers’ state law 

claims are preempted, expressly or otherwise, by the HEA. Our answer to the 

question is no. We divide our analysis into two parts. In Part A, we address why 

the Borrowers’ claims are not expressly preempted by § 1098g of the HEA. In 

Part B, we explain why the Borrowers’ claims are not preempted implicitly, either 

by conflict or field preemption. 

A. The Borrowers’ Claims Are Not Expressly Preempted. 

We first consider whether the Borrowers’ claims are preempted by express 

language in the HEA. The HEA includes various provisions that explicitly 

preempt certain areas of state law. See, e.g., 20 U.S.C. §§ 1078(d) (state usury 

laws); 1091a(a)(2) (state statutes of limitations); 1091a(b)(2) (state law infancy 

defense). Section 1098g, entitled, “Exemption from State disclosure 

requirements,” is one such express preemption provision. It provides:

Loans made, insured, or guaranteed pursuant to a program authorized by 

Title IV of the [HEA] . . . shall not be subject to any disclosure 

requirements of any State law.

Id. § 1098g. 

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It is clear, and the parties do not contest, that § 1098g expressly preempts 

state laws requiring federal student loan servicers to make additional disclosures 

beyond what the HEA requires. The Borrowers’ complaint attempts to impose 

state disclosure requirements on servicers, Great Lakes argues, because their 

affirmative misrepresentation claims, at their core, are based on a failure to 

disclose correct information. We reject Great Lakes’s characterization of the 

Borrowers’ claims and its argument that § 1098g so broadly preempts state law. 

We conclude that the precise language Congress used in § 1098g preempts only 

state law that imposes disclosure requirements; state law causes of action arising 

out of affirmative misrepresentations a servicer voluntarily made that did not 

concern the subject matter of required disclosures impose no “disclosure 

requirements.” 

Before we address Great Lakes’s characterization of the Borrowers’ claims, 

as an initial matter we must “identify the domain expressly pre-empted” by 

§ 1098g. Cipollone, 505 U.S. at 517 To identify the domain expressly preempted 

by Congress, we read “the words of a statute . . . in their context and with a view to 

their place in the overall statutory scheme.” Home Depot U. S. A., Inc. v. Jackson, 

139 S. Ct. 1743, 1748 (2019) (internal quotation marks omitted). Section 1098g 

concerns “disclosure requirements,” but the HEA does not define “disclosure 

requirements” or “disclosure.” The HEA does, however, identify the disclosures it 

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requires. See 20 U.S.C. § 1083(a), (b), (e). Viewed in its statutory context, then, 

the term “disclosure requirements” refers to the HEA’s requirements that certain 

information be communicated to borrowers during the various stages of a loan, as 

laid out in § 1083 of the statute. Thus, the domain § 1098g preempts is the type of 

disclosures to borrowers that § 1083 requires. 

We now turn to the nature of the Borrowers’ state law claims. We examine 

whether these claims are based on failures to disclose, as Great Lakes contends, 

such that allowing the claims to proceed would violate § 1098g. The Borrowers 

allege that Great Lakes made affirmative misrepresentations to them while they 

were in the repayment stage of their federal student loans. The most relevant part 

of the HEA is § 1083(e), which details the “[r]equired disclosures during 

repayment.” See id. § 1083(e). Section 1083(e) principally requires the servicer to 

disclose information about the loan itself, including: the original principal amount 

of the loan, the borrower’s current outstanding balance, the loan’s interest rate, the 

fees the borrower has been charged, the total amount paid in interest on the loan, 

and the aggregate total amount the borrower has paid on the loan. See id.

§ 1083(e)(1). In addition, when a borrower is having difficulty making payments, 

the servicer must provide a description of available repayment plans, the 

requirements for forbearance on the loan, and the options to help the borrower 

avoid defaulting on the loan. See id. § 1083(e)(2). 

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Comparing these types of disclosures to the communications between Great 

Lakes and the Borrowers here, we find little to no similarity. Although at first 

blush the subject of the communications at issue might appear to resemble a 

description of payment plans or options to prevent default, the Borrowers were not 

behind on payments or facing default. Instead, they requested information about a 

loan forgiveness program for borrowers employed in public service jobs, 

specifically, whether they were in a position to meet that program’s requirements. 

Great Lakes’s voluntary, personalized, affirmative misrepresentations in the form 

of advice about whether an individual borrower was on track to qualify for the 

PSLF Program was different in kind from any disclosure required by this 

subsection or any other provision of the HEA. The Borrowers’ claims therefore 

did not correspond with a failure to make a disclosure under the HEA. 

In concluding that the Borrowers’ affirmative misrepresentation claims are 

simply restyled failure-to-disclose claims and so allowing the claims to proceed 

would impose state law disclosure requirements on servicers in violation of 

§ 1098g, the district court never considered what constitutes a disclosure under 

§ 1083 or any other provision of the HEA. Without reference to the HEA’s 

identification of information required to be disclosed, the district court stated that 

“[c]laims that a servicer provided inaccurate information [are] no different than a 

claim that Great Lakes failed to make proper disclosures.” Doc. 44 at 9. Great 

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Lakes contends that this position is supported by Chae v. SLM Corp., 593 F.3d 936 

(9th Cir. 2010). We first explain why Great Lakes’s characterization of the 

Borrowers’ claims as failure-to-disclose claims is untenable and then explain why 

Chae fails to persuade us otherwise. 

Taking a close look at the Borrowers’ complaint, we see no allegation that 

Great Lakes failed to provide them with any information that it had a legal 

obligation to disclose. Rather, the Borrowers alleged that when Great Lakes chose 

to provide them with information it was not required to disclose—about their 

eligibility for the PSLF Program—it gave false information.9

 If instead the 

Borrowers had alleged that Great Lakes had a duty to inform them whether they 

qualified for the PSLF Program, such a claim might well be preempted. But here, 

Great Lakes was not required to say anything about loan forgiveness. It could have 

remained silent instead of giving the Borrowers advice. Holding Great Lakes 

liable for offering false information would therefore neither impose nor equate to 

imposing on servicers a duty to disclose information. It would simply require 

9 The Borrowers additionally argue that § 1083, read together with DOE regulations, 

suggests that Congress intended to draw a distinction between written “disclosures” and “other 

communications” between a borrower, on the one hand, and a lender or servicer, on the other, 

see 34 C.F.R. § 682.205(a)(4)(ii). The Borrowers contend that this distinction leads to the 

conclusion that the HEA provides no “guidance regarding what loan servicers may or may not 

communicate in informal telephonic communications.” Appellants’ Br. at 23. Therefore, they 

argue, federal law does not preempt state law with respect to such communications. Because we 

conclude that the affirmative misrepresentations Great Lakes allegedly made were not subject to 

disclosure requirements under the HEA, we need not address this argument. 

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Great Lakes and other servicers to speak truthfully when they choose to speak 

about a borrower’s qualification for the PSLF Program or any other topic on which 

servicers have no duty to disclose. 

We find support for this distinction between an affirmative 

misrepresentation and a failure to disclose in the law of torts. To succeed on a 

failure-to-disclose claim, the plaintiff must establish that there was a duty to speak 

and the duty was breached. See Chiarella v. United States, 445 U.S. 222, 228 

(1980) (“[O]ne who fails to disclose material information . . . commits fraud only 

when he is under a duty to do so. And the duty to disclose arises when one party 

has information that the other party is entitled to know because of a fiduciary or 

other similar relation of trust and confidence between them” (alteration adopted) 

(internal quotations omitted)). In contrast, a claim alleging an affirmative 

misrepresentation does not rely on a duty to disclose. See Nelson v. Great Lakes 

Educ. Loan Servs., Inc., 928 F.3d 639, 649 (7th Cir. 2019) (“The common law tort 

of fraud ordinarily requires a deliberately false statement of material fact. An 

omission or failure to disclose, on the other hand, will not support a common law 

fraud claim . . . .” (citations omitted)). Here, the Borrowers alleged no duty to 

disclose information about the Borrowers’ eligibility for PSLF, only a duty to 

speak truthfully; we thus reject Great Lakes’s characterization of the Borrowers’ 

claims as failure-to-disclose claims.

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We now address Great Lakes’s argument that the Ninth Circuit’s decision in 

Chae supports its characterization of the Borrowers’ claims as restyled failure-todisclose claims.10 Great Lakes argues that Chae is persuasive as a “nearly 

identical” case. Appellee’s Br. at 41. At issue in Chae were state law claims 

challenging how a federal student loan servicer communicated its methods of 

calculating interest, assessing late fees, and setting the first repayment date. Chae, 

593 F.3d at 940–41. The borrowers in Chae claimed, in part, that the servicer 

violated California’s unfair competition law and Consumer Legal Remedies Act by 

failing to disclose key information about these methods in its billing statements 

and coupon books.11 Id. at 942. The Ninth Circuit concluded that these 

10 Great Lakes also argues that the Borrowers’ claims are similar to a fraudulent 

misrepresentation theory the Supreme Court held to be expressly preempted by § 5 of the federal 

Public Health Cigarette Smoking Act of 1969 (“PHCSA”). Cipollone, 505 U.S. at 510. We 

disagree that the Borrowers’ claims are analogous to the preempted fraudulent misrepresentation 

theory in Cipollone. First, the preemption statute at issue in Cipollone contained broader, 

different language than § 1098g of the HEA. Second, the Borrowers’ affirmative 

misrepresentation claims are more like the second theory of fraudulent misrepresentation 

addressed in Cipollone. The Court held in Cipollone that the plaintiffs’ second theory of 

fraudulent misrepresentation was not preempted because it was based not on a duty related to 

smoking and health, the subject of the PHCSA, but “rather on a more general obligation[,] the 

duty not to deceive.” Id. at 528–29 (plurality opinion). Similarly, the Borrowers’ claims are 

based not on a duty to disclose but the duty not to deceive. Thus, we are not persuaded by Great 

Lakes’s argument that Cipollone leads to a contrary conclusion. 

11 The plaintiffs in Chae also brought claims against the servicer for breach of contract, 

unjust enrichment, breach of the implied covenant of good faith and fair dealing, and the use of 

fraudulent and deceptive practices apart from the billing statements. See Chae, 593 F.3d at 943. 

Because the Ninth Circuit held that these claims were not expressly preempted, we do not 

discuss them here.

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misrepresentation claims were simply restyled nondisclosure claims that were 

expressly preempted by § 1098g. Id. at 943. 

Importantly, these claims challenged how the servicer communicated 

information that the HEA required it to disclose. Id. at 942–43; see Nelson, 

928 F.3d 649–50 (“The plaintiffs in Chae complained about the supposed failures 

to disclose key information in specific ways, such as loan terms and repayment 

requirements. Since the defendant was required to disclose that information by 

federal law and had disclosed it in ways permitted by federal law, the Ninth Circuit 

found that the plaintiffs were implicitly seeking to impose additional disclosure 

requirements under state law.”) Here, however, the Borrowers made no claim that 

Great Lakes disclosed in a misleading manner information it was required to 

disclose; rather, they alleged that Great Lakes voluntarily provided information on 

a matter on which it was not required to disclose, and while doing so made 

affirmative misrepresentations. Chae does not persuade us that the Borrowers’ 

claims are expressly preempted.

Without a doubt, § 1098g of the HEA expressly preempts a state law’s 

imposition of disclosure requirements on federal student loan servicers, but the 

Borrowers do not allege that Great Lakes had a duty to disclose anything about the 

PSLF Program—and in fact it had no such duty. Section 1098g of the HEA does 

not expressly preempt the Borrowers’ claims.

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B. The Borrowers’ Claims Are Not Otherwise Preempted. 

Having concluded that the Borrowers’ claims are not expressly preempted, 

we next turn to Great Lakes’s argument that the Borrowers’ claims are preempted 

implicitly, either by the doctrine of conflict or of field preemption.12 

1. Conflict Preemption Does Not Apply to the Borrowers’ Claims.

Even where state law is not expressly preempted, it may nevertheless be 

preempted where it “conflicts with federal law.” Cipollone, 505 U.S. at 516. 

Conflict preemption can occur when (1) it is impossible for a party to comply with 

both state and federal law, or (2) the state law “stands as an obstacle to the 

accomplishment and execution of the full purposes and objectives of Congress.” 

Crosby v. Nat’l Foreign Trade Council, 530 U.S. 363, 373 (2000) (internal 

quotation marks omitted). We conclude that conflict preemption does not apply 

here due to the general implication that arises when Congress has expressly 

preempted specific areas of state law: that it did not intend to preempt state law 

more broadly. But even if the inference against preemption should not be drawn 

here, the Borrowers’ claims present no conflict with federal law because we remain 

unconvinced that the purpose Great Lakes advances—uniformity for uniformity’s 

sake—is in fact a goal of the HEA.

12 The district court did not address conflict or field preemption; having concluded that 

the Borrowers’ claims were expressly preempted, the court had no need to address implied 

preemption. 

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When Congress has explicitly addressed preemption in a statute, an 

implication arises that it did not intend to preempt other areas of state law. 

Graham, 857 F.3d at 1189; see Nelson, 928 F.3d at 648 (reasoning that the 

inclusion of other express preemption provisions in the HEA “weigh[s] against 

attributing to Congress a desire to preempt state law broadly”). In Cipollone, the 

Supreme Court explained:

When Congress has considered the issue of pre-emption and has 

included in the enacted legislation a provision explicitly addressing that 

issue, and when that provision provides a reliable indicium of 

congressional intent with respect to state authority, there is no need to 

infer congressional intent to pre-empt state laws from the substantive 

provisions of the legislation. Such reasoning is a variant of the familiar 

principle of expression unius est exclusio alterius: Congress’ 

enactment of a provision defining the pre-emptive reach of a statute 

implies that matters beyond that reach are not pre-empted. 

Cipollone, 505 U.S. at 517 (internal quotation marks and citations omitted). Based 

on this implication, we conclude that conflict preemption does not apply. In the 

HEA, Congress included provisions expressly preempting specific areas of state 

law, including § 1098. See, e.g., 20 U.S.C. §§ 1078(d) (state usury laws); 

1091a(a)(2) (state statutes of limitations); 1091a(b)(2) (state law infancy defense). 

Section 1098g “offer[s] no cause to look beyond” it. Cipollone, 505 U.S. at 517. 

We therefore find “no need to infer congressional intent to pre-empt state laws 

from the substantive provisions” of the HEA. Id. (internal quotation marks 

omitted). 

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But even assuming that conflict preemption could exist here despite the 

HEA’s express preemption provisions, we would nonetheless conclude that the 

Borrowers’ claims present no conflict with the HEA.13 Great Lakes argues that the 

Borrowers’ state law claims would interfere with, and therefore stand as an 

obstacle to, what Great Lakes contends was Congress’s objective in the federal 

student loan program: uniformity of communications between loan servicers and 

borrowers.14 Great Lakes’s argument fails because it rests on the mistaken premise 

13 Great Lakes argues that we must defer to the DOE’s determination in the Notice that 

Congress intended for the HEA to preempt state laws regulating servicers of FFEL loans. See 

Notice, 83 Fed. Reg. at 10621. But we conclude that the Notice is entitled to no special 

deference. We find persuasive the district court’s analysis of what deference the Notice is owed 

in Student Loan Servicing Alliance v. District of Columbia, 351 F. Supp. 3d 26, 48–49 (D.D.C. 

2018), and similarly conclude that Skidmore, 323 U.S. at 138, 140, provides the appropriate 

framework for determining whether the agency’s determination is entitled to deference. Under 

Skidmore, we conclude that the Notice should be given little weight because “it is not 

particularly thorough and it ‘represents a stark, unexplained change’ in the Department’s 

position.” Nelson, 928 F.3d at 651 n.2 (quoting Student Loan Servicing Alliance, 351 F. Supp. 

3d at 50). We acknowledge that the Notice also addresses express preemption; however, we find 

the Notice unpersuasive as to express preemption for the same reason. 

14 Relying on Boyle v. United Technologies Corp., 487 U.S. 500, 508 (1988), Great Lakes 

also advances a broader theory of conflict preemption, one based on the “uniquely federal 

interest in uniformity.” Appellee’s Br. at 28. In Boyle, the Supreme Court held that state law is 

preempted where there is: (1) “an area of uniquely federal interest” and (2) a “significant 

conflict exists between an identifiable federal policy or interest and the operation of state law, or 

the application of state law would frustrate specific objectives of federal legislation.” Boyle, 

487 U.S. at 507 (alteration adopted) (citations and internal quotation marks omitted). Great 

Lakes argues that there is a uniquely federal interest present in the HEA because loan servicers 

act under contracts with the federal government. 

It is true that when liability is imposed on federal government contractors, the interest of 

the federal government is affected. The inquiry does not end there, however, because even 

though the conflict in an area of uniquely federal interest “need not be as sharp as that which 

must exist for ordinary pre-emption,” a “conflict there must be.” Id. at 507–08. Because we 

conclude that uniformity is not an overarching goal of the HEA, no such conflict exists, and 

Boyle is inapplicable.

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that Congress’s goal in enacting the federal student loan program was such 

uniformity. Congress expressly identified the purposes of the program to include: 

(A) “encourag[ing] States and nonprofit institutions and organizations to establish 

adequate loan insurance programs for students,” (B) “provid[ing] a Federal 

program of student loan insurance for students or lenders who do not have 

reasonable access to a State or private nonprofit program of student loan 

insurance,” (C) “pay[ing] a portion of the interest on loans to qualified students 

which are insured,” and (D) “guarantee[ing] a portion of each loan insured under a 

[qualified] program of a State or of a nonprofit private institution or organization.” 

See 20 U.S.C. § 1071(a)(1). Notably, Congress did not use the word “uniformity” 

or invoke the concept of uniformity in § 1071(a)(1). 

Absent a statement or other indication from Congress that its purpose in 

enacting the FFELP was uniformity, multiple courts that have examined this issue 

have determined that uniformity was not a goal of the HEA. See Coll. Loan Corp. 

v. SLM Corp., 396 F.3d 588, 597 (4th Cir. 2005) (“We are unable to confirm that 

the creation of ‘uniformity’ . . . was actually an important goal of the HEA.”); 

Daniel v. Navient Sols., LLC, 328 F. Supp. 3d 1319, 1324 (M.D. Fla. 2018) 

(“Uniformity, however, is not one of Congress’s expressed goals in enacting the 

HEA . . . .”); see also Brooks v. Salle Mae, Inc., No. FSTCV096002530S, 

2011 WL 6989888, at *9 (Conn. Super. Ct. Dec. 20, 2011) (unpublished) 

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(concluding that “because uniformity is not mentioned as a goal of the HEA,” 

compliance with the Connecticut Unfair Trade Practices Act “is not an obstacle to 

the achievement of the objectives of the HEA”).

We acknowledge that the Ninth Circuit in Chae concluded otherwise when it 

determined that although some of the borrowers’ claims were not expressly 

preempted by § 1098g, they nonetheless were implicitly preempted because they 

posed an obstacle to the uniform operation of FFELP and therefore the HEA. 

Chae, 593 F.3d at 946. In concluding that uniformity was an intended purpose of 

the HEA, the Ninth Circuit relied on the comprehensive framework of the FFELP, 

citing congressional direction to the DOE in the FFELP that referenced the 

standardizing of forms, procedures, terms, conditions, and benefits throughout the 

federal student loan programs. Id. at 944–45. The Ninth Circuit then determined 

that allowing state law causes of action to proceed would conflict with that 

purpose. Id. at 943, 945. 

We are unconvinced by the Ninth Circuit’s conclusion that uniformity was 

an intended purpose of the HEA. Accepting the Ninth Circuit’s reasoning that the 

HEA, through regulations in the FFELP, provides a detailed comprehensive 

scheme or the standardization of certain procedures and other aspects of the federal 

student loan program does not lead us to its conclusion because we do not infer 

preemption from the comprehensive nature of a regulation alone. N.Y. State Dep’t 

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of Soc. Servs. v. Dublino, 413 U.S. 405, 415 (1973). Although the guidance 

provided by Congress in the FFELP is comprehensive, “subjects of modern social 

and regulatory legislation often by their very nature require intricate and complex 

responses from the Congress, but without Congress necessarily intending its 

enactment as the exclusive means of meeting the problem.” Id. Chae is also 

distinguishable because the Ninth Circuit identified the Congress’s purpose as the 

“uniform administration” of the FFELP. 593 F.3d at 944–55, 948. The claims in 

Chae concerned assessment of late fees, establishing repayment start dates, and 

interest calculations—core administrative aspects of the FFELP that arguably 

require more nationwide consistency than the subject of the claims at issue here, 

personalized advice about loan forgiveness provided to individual student loan 

borrowers. See id.; see also Nelson, 928 F.3d at 651 (noting that the broad 

language regarding conflict preemption in Chae “focused on different sorts of 

claims, where the value of uniformity would be more compelling than it is here” 

and “assum[ing] the need for nationwide consistency on those sorts of 

administrative mechanics is substantial”). 

Even if we assume that uniformity is a purpose of the HEA, the Borrowers’ 

claims would not conflict with that purpose. Congress’s interest in ensuring 

uniform disclosures would not be harmed by a prohibition on voluntary affirmative 

misrepresentations See Cipollone, 505 U.S. at 529 (“State-law prohibitions on 

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false statements of material fact do not create ‘diverse, nonuniform, and confusing’ 

standards.”) (plurality opinion); see also Pennsylvania v. Navient Corp., 354 F. 

Supp. 3d 529, 553 (M.D. Pa. 2018) (“Whether or not ‘uniformity’ is actually a goal 

of the HEA . . . [t]he uniformity of the HEA in setting its requirements for the 

standard parameters of the federal student loan programs is not harmed by 

prohibiting unfair or deceptive conduct in the operation of those programs that is 

not explicitly permitted by the HEA . . . .”).15 We agree with the reasoning of 

these courts: prohibiting Great Lakes from making affirmative misrepresentations 

to borrowers—in contrast to imposing a duty to disclose—does no harm to 

standardization of disclosures for federal student loan programs.

2. The HEA Does Not Preempt the Field of Regulation of Student 

Loans.

Relying on its argument that the HEA requires uniform administration, Great 

Lakes argues that field preemption also applies. Field preemption exists where 

Congress has “legislated so comprehensively” in an area of law that there is no 

room for supplemental state legislation. R.J. Reynolds Tobacco Co. v. Durham 

Cty., 479 U.S. 130, 140 (1986). 

We find Great Lakes’s field preemption argument to be the weakest of its 

preemption arguments. This Court previously has addressed the question of field 

15 An appeal of this decision is currently pending before the Third Circuit. See 

Pennsylvania v. Navient Corp., No. 19-2116 (3rd Cir).

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preemption by the HEA in the context of debt collection and consumer protection 

law. See Cliff v. Payco Gen. Am. Credits, Inc., 363 F.3d 1113, 1125–26 (11th Cir. 

2004). Taking into account the HEA’s express preemption provisions, we 

concluded in Cliff that “the enactment of the HEA does not ‘occupy the field’ of 

debt collection practices and thus does not impliedly preempt [state laws].” Id. at 

1126. We similarly conclude here that federal regulation of lending to students for 

higher education is not so extensive as to indicate that Congress intended to occupy 

the entire field. The mere fact that Congress has legislated in this field does not 

imply that it seeks to occupy the entirety of it. See Keams v. Tempe Tech. Inst., 

Inc., 39 F.3d 222, 226 (9th Cir. 1994) (observing that “a detailed regulatory 

scheme does not by itself imply preemption of state remedies” or an intent by 

Congress to occupy the entire field). Given the implication against implied 

preemption where Congress has expressly preempted specific areas of state law, 

see Cipollone, 505 U.S. at 517, we conclude, as we did in Cliff, that field 

preemption does not apply to the HEA. 

Our conclusion is consistent with decisions from other courts addressing 

field preemption by the HEA. Indeed, no circuit court that has considered the issue 

has found field preemption. See Nelson, 928 F.3d at 652 (“Courts have 

consistently held that field preemption does not apply to the HEA, and we do as 

well.”); Chae, 593 F.3d at 941–42 (noting that “field preemption does not apply to 

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the HEA”); Armstrong v. Accrediting Council for Continuing Educ. & Training, 

Inc., 168 F.3d 1362, 1369 (D.C. Cir. 1999) (concluding that “federal education 

policy regarding [lending to students] is not so extensive as to occupy the field”). 

Field preemption does not apply to the Borrowers’ claims. 

V. CONCLUSION

The district court erred in concluding that the Borrowers’ claims were 

preempted by the HEA. We note that Great Lakes raised in the district court 

additional arguments why the Borrowers’ claims should be dismissed, including 

that the Borrowers failed to meet Federal Rule of Civil Procedure 9(b)’s 

heightened pleading standard. But “[b]ecause none of these issues were decided 

initially, we decline to address them for the first time on appeal.” Leal v. Ga. 

Dep’t of Corrs., 254 F.3d 1276, 1280–81 (11th Cir. 2001). We thus vacate the 

district court’s order granting the motion to dismiss and remand for further 

proceedings consistent with this opinion. 

VACATED and REMANDED. 

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