[Federal Register Volume 78, Number 189 (Monday, September 30, 2013)]
[Notices]
[Pages 59995-59997]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2013-23681]
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SECURITIES AND EXCHANGE COMMISSION
[Release No. 34-70482; File No. SR-FINRA-2013-039]
Self-Regulatory Organizations; Financial Industry Regulatory
Authority, Inc.; Notice of Filing of Proposed Rule Change To Clarify
the Classification and Reporting of Certain Securities to FINRA
September 24, 2013.
Pursuant to Section 19(b)(1) of the Securities Exchange Act of 1934
(the ``Act'') \1\ and Rule 19b-4 thereunder,\2\ notice is hereby given
that on September 16, 2013, the Financial Industry Regulatory
Authority, Inc. (``FINRA'') filed with the Securities and Exchange
Commission (``Commission'') the proposed rule change as described in
Items I, II, and III below, which Items have been prepared by FINRA.
The Commission is publishing this notice to solicit comments on the
proposed rule change from interested persons.
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\1\ 15 U.S.C. 78s(b)(1).
\2\ 17 CFR 240.19b-4.
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I. Self-Regulatory Organization's Statement of the Terms of Substance
of the Proposed Rule Change
FINRA is filing a proposed rule change to adopt an interpretation
to clarify the classification and the reporting of certain securities
to FINRA.
The proposed rule change does not make any changes to the text of
FINRA rules.
II. Self-Regulatory Organization's Statement of the Purpose of, and
Statutory Basis for, the Proposed Rule Change
In its filing with the Commission, FINRA included statements
concerning the purpose of and basis for the proposed rule change and
discussed any comments it received on the proposed rule change. The
text of these statements may be examined at the places specified in
Item IV below. FINRA has prepared summaries, set forth in sections A,
B, and C below, of the most significant aspects of such statements.
A. Self-Regulatory Organization's Statement of the Purpose of, and
Statutory Basis for, the Proposed Rule Change
1. Purpose
FINRA trade reporting rules generally require that members report
over-the-counter (``OTC'') transactions in debt securities that are
TRACE-Eligible Securities and equity securities to
[[Page 59996]]
FINRA.\3\ FINRA Rule 6622 requires that members report OTC transactions
in ``OTC Equity Securities'' \4\ to the ORF and the FINRA Rule 6700
Series requires members to report transactions in ``TRACE-Eligible
Securities'' to TRACE.\5\
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\3\ See FINRA Rules 6282 (relating to the Alternative Display
Facility (``ADF'')), 6380A (relating to the FINRA/Nasdaq Trade
Reporting Facility), 6380B (relating to the FINRA/NYSE Trade
Reporting Facility), 6622 (relating to the OTC Reporting Facility
(``ORF'')) and 6730 (relating to the Trade Reporting and Compliance
Engine (``TRACE'')).
\4\ FINRA Rule 6420(f) defines ``OTC Equity Security'' to
include ``any equity security that is not an `NMS stock' as that
term is defined in Rule 600(b)(47) of SEC Regulation NMS; provided,
however, that the term `OTC Equity Security' shall not include any
Restricted Equity Security.'' FINRA Rule 6420(k) defines
``Restricted Equity Security'' to mean ``any equity security that
meets the definition of `restricted security' as contained in
Securities Act Rule 144(a)(3).''
\5\ FINRA Rule 6710(a) defines ``TRACE-Eligible Security'' to
include ``a debt security that is United States (`U.S.') dollar-
denominated and issued by a U.S. or foreign private issuer, and, if
a `restricted security' as defined in Securities Act Rule 144(a)(3),
sold pursuant to Securities Act Rule 144A.''
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FINRA recently has received inquiries regarding the appropriate
classification of certain ``hybrid'' securities for trade reporting
purposes. FINRA is aware that as new securities are created and issued,
in some cases, the newer hybrid iteration, although derived from a
traditional security, may be increasingly complex, and may have both
debt- and equity-like features. These hybrid securities are frequently
designed to straddle both classifications for a variety of purposes,
including the tax treatment applicable to issuers and recipients when
distributions are made (or not made) to holders of the security, and
the treatment of the principal as capital for issuers subject to
capital requirements. As such, determining whether these hybrid
securities should be classified as ``debt'' or ``equity'' for purposes
of trade reporting to the appropriate FINRA facility has become less
clear.
Given the complexity of these hybrid securities, FINRA proposes an
interpretation regarding the classification and reporting of two
categories of hybrid securities (depositary shares and capital trust
securities (also referred to as trust preferred securities)) to clarify
the appropriate trade reporting facility to which such securities
should be reported.\6\ In addition, FINRA proposes a policy to address
the treatment of securities that are currently being reported to a
facility that is not the designated facility under this interpretation.
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\6\ The proposed interpretation applies solely to a hybrid
security that is not listed on an equity facility of a national
securities exchange. See, e.g., FINRA Trade Reporting Notice,
February 22, 2008 (FINRA applied TRACE reporting requirements,
distinguishing between listed and unlisted securities, and required
members to report transactions in unlisted convertible debt and
unlisted equity-linked notes to TRACE, and OTC transactions in
convertible debt and equity-linked notes listed on an equity
facility of a national securities exchange to an appropriate FINRA
equity trade reporting facility for NMS Stocks (the ADF or a trade
reporting facility (``TRF'')). For purposes of this proposed rule
change, the term ``listed on an equity facility of a national
securities exchange'' means a security that qualifies as an NMS
stock (as defined in Rule 600(b)(47) of Regulation NMS under the
Act) as distinguished from a security that is listed on a bond
facility of a national securities exchange. See 17 CFR
242.600(b)(47).
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Depositary Shares
FINRA proposes to interpret the term OTC Equity Security to include
a depositary share that is not listed on an equity facility of a
national securities exchange. Depositary shares generally are
securities that represent a fractional interest in a share of preferred
stock, which is considered an equity security. Depositary shares
generally entitle the holder, through the depositary, to a proportional
fractional interest in the rights, powers and preferences of the
preferred stock represented by the depositary share. Under this
interpretation, members must request a symbol, if one has not already
been assigned, for such depositary shares for ORF reporting in
compliance with the applicable reporting requirements. Members must
also report in accordance with ORF requirements; for example, price
should be reported as the dollar price per share and volume should be
reported as the number of depositary shares traded.\7\
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\7\ See FINRA Rule 6622; see also Trade Reporting FAQ 101.6,
available at www.finra.org/Industry/Regulation/Guidance/p038942#101.
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Capital Trust Securities
FINRA proposes to interpret the term TRACE-Eligible Security to
include capital trust securities and trust preferred securities.
Historically, many of these securities, particularly those issued with
$1,000 par value and not listed on an equity facility of a national
securities exchange, were reported to Fixed Income Pricing System
(``FIPS'') prior to the implementation of TRACE.\8\ When TRACE was
proposed, FIPS securities were to be transferred to TRACE.\9\ In
addition, as part of the proposal, FINRA (then NASD) specifically
identified capital trust securities in a list of instruments that NASD
considered TRACE-Eligible Securities, which would be reported to TRACE
and otherwise subject to the FINRA Rule 6700 Series requirements.\10\
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\8\ FINRA (formerly, the National Association of Securities
Dealers, Inc. (``NASD'')) operated FIPS through its then subsidiary,
NASDAQ. FIPS began in April 1994 and collected transaction and
quotation information on domestic, registered, non-convertible high-
yield corporate bonds. OTC capital trust securities and trust
preferred securities were treated as FIPS securities and often
included in the regularly published lists of the most actively-
traded FIPS securities, referred to as the ``FIPS 50.'' See
Securities Exchange Act Release No. 43873 (January 23, 2001), 66 FR
8131 (January 29, 2001) (Order Approving Proposed Rule Change and
Notice of Filing and Order Granting Accelerated Approval to
Amendment No. 4, Relating to the Creation of a Corporate Bond Trade
Reporting and Transaction Dissemination Facility and the Elimination
of Nasdaq's Fixed Income Pricing System) (File No. SR-NASD-99-65)
(``SEC TRACE Approval Order'').
\9\ See, e.g., SEC TRACE Approval Order, 66 FR 8131, at 8132-
8133, note 13 and note 16.
\10\ In SR-NASD-99-65, FINRA (then NASD) indicated that capital
trust securities would be TRACE-Eligible Securities. See Securities
Exchange Act Release No. 42201 (December 3, 1999), 64 FR 69305, at
69309 (December 10, 1999) (Notice of Filing of Proposed Rule Change
Relating to the Creation of a Corporate Bond Trade Reporting and
Transaction Dissemination Facility and the Elimination of Nasdaq's
Fixed Income Pricing System (``FIPS'')) (File No. SR-NASD-99-65);
see also SEC TRACE Approval Order.
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FINRA is clarifying that capital trust securities and trust
preferred securities (other than a capital trust security or a trust
preferred security that is listed on an equity facility of a national
securities exchange) must be reported to TRACE (and not to ORF) and
transactions in such securities must be reported in compliance with the
applicable reporting requirements.\11\ For example, price should be
reported as a percentage of par value and volume should be reported as
the total par value of the transaction (not the number of bonds
traded).\12\
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\11\ This interpretation would apply even if the capital trust
security (or a trust preferred security) was previously listed on an
equity facility of a national securities exchange and reported to a
FINRA equity facility, but has since been delisted. Once delisted,
the security must be reported to TRACE.
\12\ See FINRA Rule 6730.
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Hybrid Securities Currently Being Reported to ORF and TRACE
FINRA believes that, given the complexity of many of the securities
that are the subject of this proposed rule change, it is reasonable
that firms, despite their best efforts, may have reached different
conclusions on where transactions in these hybrid securities should be
reported. FINRA proposes that, as of the effective date of this
proposed rule change, securities that are affected by this
interpretation will be transferred, if necessary, for reporting to the
appropriate trade reporting facility, and after this transfer members
must report all transactions in such securities to the appropriate
trade reporting facility. Members will not be required to retroactively
cancel and correct any
[[Page 59997]]
transactions in such securities previously reported to a facility that
is not the designated facility under this interpretation. Thus, members
will not be required to cancel and correct transactions in capital
trust securities reported to the ORF or transactions in depositary
shares reported to TRACE prior to the effective date of this proposed
rule change.\13\ However, if a firm reported a transaction to the
facility designated in this proposed interpretation, but did not report
in accordance with applicable trade reporting requirements of that
facility (e.g., a firm reported a transaction to ORF, but inaccurately
reported the price or size as if reporting to TRACE), the firm will be
required to cancel and re-report such transactions accurately.
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\13\ Pursuant to Section 31 of the Act, FINRA and the national
securities exchanges are required to pay transaction fees and
assessments to the SEC that are designed to recover the costs
related to the government's supervision and regulation of the
securities markets and securities professionals. See 15 U.S.C. 78ee.
FINRA obtains its Section 31 fees and assessments from its
membership, in accordance with Section 3 of Schedule A to the FINRA
By-Laws. The transactions that are assessable under Section 3 of
Schedule A to the FINRA By-Laws are reported to FINRA through one of
FINRA's equity trade reporting facilities: The ORF, the ADF, or a
TRF. As expressly stated in the Act, sales of bonds, debentures, or
other evidence of indebtedness (debt securities) are excluded from
Section 31 of the Act. See 15 U.S.C. 78ee(b). Because of this
exclusion under Section 31 of the Act, transactions reported to
TRACE are not subject to the regulatory transaction fee under
Section 3 of Schedule A to the FINRA By-Laws. To determine whether a
non-exchange listed security is an equity security or a debt
security for purposes of assessing the regulatory transaction fee,
FINRA relies on the facility to which the transaction is reported.
If the transaction is reported to the ORF, the transaction is
treated as one involving an equity security and is subject to the
regulatory transaction fee. If the transaction is reported to TRACE,
the transaction is treated as one involving a debt security and thus
is not subject to the regulatory transaction fee. See Regulatory
Notice 08-72 (November 2008).
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FINRA will announce the effective date of the proposed rule change
in a Regulatory Notice to be published no later than 60 days following
Commission approval. The effective date will be no later than 90 days
following publication of the Regulatory Notice announcing Commission
approval.
2. Statutory Basis
FINRA believes that the proposed rule change is consistent with the
provisions of Section 15A(b)(6) of the Act,\14\ which requires, among
other things, that FINRA rules must be designed to prevent fraudulent
and manipulative acts and practices, to promote just and equitable
principles of trade, and, in general, to protect investors and the
public interest. FINRA believes that by clarifying the classification
of certain hybrid securities for reporting purposes the proposed rule
change will reduce market and investor confusion. In addition, FINRA
believes that the proposed rule change will improve transparency
significantly because members will report transactions in the same
security using a uniform set of conventions and to the same facility
(i.e., the ORF or TRACE). This will allow investors and other market
participants to better compare transaction pricing and the quality of
their executions, which promotes just and equitable principles of
trade, deters fraudulent and manipulative acts and practices in the
market for such securities, and furthers the protection of investors
and the public interest.
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\14\ 15 U.S.C. 78o-3(b)(6).
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B. Self-Regulatory Organization's Statement on Burden on Competition
FINRA does not believe that the proposed rule change will result in
any burden on competition that is not necessary or appropriate in
furtherance of the purposes of the Act. Members that are required
currently to report transactions in hybrid securities will continue to
be subject to transaction reporting requirements and will be provided
clarity as to which facility such hybrid securities should be reported,
which will promote uniformity and consistency in trade reporting within
these categories of products.
C. Self-Regulatory Organization's Statement on Comments on the Proposed
Rule Change Received from Members, Participants, or Others
Written comments were neither solicited nor received.
III. Date of Effectiveness of the Proposed Rule Change and Timing for
Commission Action
Within 45 days of the date of publication of this notice in the
Federal Register or within such longer period (i) as the Commission may
designate up to 90 days of such date if it finds such longer period to
be appropriate and publishes its reasons for so finding or (ii) as to
which the self-regulatory organization consents, the Commission will:
(A) By order approve or disapprove such proposed rule change, or
(B) institute proceedings to determine whether the proposed rule
change should be disapproved.
IV. Solicitation of Comments
Interested persons are invited to submit written data, views, and
arguments concerning the foregoing, including whether the proposed rule
change is consistent with the Act. Comments may be submitted by any of
the following methods:
Electronic Comments
Use the Commission's Internet comment form (http://www.sec.gov/rules/sro.shtml); or
Send an email to [email protected]. Please include
File Number SR-FINRA-2013-039 on the subject line.
Paper Comments
Send paper comments in triplicate to Elizabeth M. Murphy,
Secretary, Securities and Exchange Commission, 100 F Street NE.,
Washington, DC 20549-1090.
All submissions should refer to File Number SR- FINRA-2013-039.
This file number should be included on the subject line if email is
used. To help the Commission process and review your comments more
efficiently, please use only one method. The Commission will post all
comments on the Commission's Internet Web site (http://www.sec.gov/rules/sro.shtml). Copies of the submission, all subsequent amendments,
all written statements with respect to the proposed rule change that
are filed with the Commission, and all written communications relating
to the proposed rule change between the Commission and any person,
other than those that may be withheld from the public in accordance
with the provisions of 5 U.S.C. 552, will be available for Web site
viewing and printing in the Commission's Public Reference Room, 100 F
Street NE., Washington, DC 20549, on official business days between the
hours of 10:00 a.m. and 3:00 p.m. Copies of the filing will also be
available for inspection and copying at principal office of FINRA. All
comments received will be posted without change; the Commission does
not edit personal identifying information from submissions. You should
submit only information that you wish to make publicly available. All
submissions should refer to File Number SR-FINRA-2013-039 and should be
submitted on or before October 21, 2013.
For the Commission, by the Division of Trading and Markets,
pursuant to delegated authority.\15\
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\15\ 17 CFR 200.30-3(a)(12).
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Kevin M. O'Neill,
Deputy Secretary.
[FR Doc. 2013-23681 Filed 9-27-13; 8:45 am]
BILLING CODE 8011-01-P