[Federal Register Volume 62, Number 176 (Thursday, September 11, 1997)] [Notices] [Pages 47858-47862] From the Federal Register Online via the Government Publishing Office [www.gpo.gov] [FR Doc No: 97-24140] ----------------------------------------------------------------------- SECURITIES AND EXCHANGE COMMISSION [Release No. 34-39025; File No. SR-NASD-97-57] Self-Regulatory Organizations; Notice of Filing of Proposed Rule Change by National Association of Securities Dealers, Inc. Relating to the Electronic Delivery of Information Between Members and Their Customers September 5, 1997. Pursuant to Section 19(b)(1) of the Securities Exchange Act of 1934 (``Act''),\1\ notice is hereby given that on July 30, 1997,\2\ the National Association of Securities Dealers, Inc. (``NASD'' or ``Association'') filed with the Securities and Exchange Commission (``SEC'' or ``Commission'') the proposed rule change as described in Items I, II, and III below, which Items have been prepared by NASD Regulation, Inc. (``NASD Regulation'' or ``NASDR'').\3\ The Commission is publishing this notice to solicit comments on the proposed rule change from interested persons. --------------------------------------------------------------------------- \1\ 15 U.S.C. 78s(b)(1). \2\ On August 27, 1997, the NASD Regulation amended its NTM attached as Exhibit A to this notice. See letter from Mary N. Revell, Associate General Counsel, NASD Regulation, Inc., to Katherine A. England, Assistant Director, Division of Market Regulation, SEC, dated August 26, 1997. \3\ The Board of Governors reviewed the proposed rule change at its meeting on August 7, 1997. See letter from Mary N. Revell, Assistant General Counsel, NASD Regulation, Inc., to Katherine A. England, Assistant Director, Division of Market Regulation, SEC, dated August 11, 1997. --------------------------------------------------------------------------- I. Self-Regulatory Organization's Statement of the Terms of Substance of the Proposed Rule Change NASDR has filed a Notice to Members (``NTM'') setting forth the policy of NASDR applicable to the electronic delivery of information between members and their customers. II. Self-Regulatory Organization's Statement of the Purpose of and Statutory Basis for, the Proposed Rule Change In its filing with the Commission, NASDR 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. NASDR 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 The Commission, in Release Nos. 34-37182 \4\ and 33-723,\5\ set forth guidelines establishing a framework under which broker-dealers and others may use electronic media as an [[Page 47859]] alternative to paper-based media to satisfy delivery obligations under federal securities laws. The Commission also indicated in the releases that an electronic communication from a customer to a broker-dealer generally would satisfy the requirements for written consent or acknowledgment under these laws. --------------------------------------------------------------------------- \4\ See Securities Exchange Act Release No. 37182, May 9, 1996; 61 FR 24644, May 15, 1996, (Commission's interpretation concerning the delivery of the information through electronic media in satisfaction of broker-dealer and transfer agent requirements to deliver information under the Act and the rules thereunder) (``May 1996 Release''). \5\ See Securities Act Release No. 7233, Oct. 6, 1995; 60 FR 53458, Oct. 13, 1995, (Commission's interpretation concerning the use of electronic media as a means of delivering information required to be disseminated pursuant to the Securities Act of 1933, the Securities Exchange Act of 1934, and the Investment Company Act of 1940). --------------------------------------------------------------------------- The NTM, attached as Exhibit A, establishes NASD Regulation policy regarding the use by members of electronic media to electronically transmit documents that they are required or permitted to furnish to customers under Association rules and to receive electronic communications from customers.\6\ The Notice states that use of electronic media is permitted provided members comply with the standards contained in the Commission releases. The Notice summarizes these standards, which address, among other things, notice, access, evidence to show delivery, communication of personal financial information, and consent. --------------------------------------------------------------------------- \6\ In the May 1966 Release, the Commission stated that broker- dealers should be cognizant of their responsibilities to prevent, and the potential liability associated with, unauthorized transactions when ``receiving'' or ``obtaining'' electronic responses from their customers. The Commission therefore requests comment on what types of security measures broker-dealers employ or will employ to reasonably assure themselves that the responses they receive electronically from customers are authentic. See, e.g., NASD Rules 3110(g) (2) and (3), (requiring members to obtain written customer authorization before obtaining a check drawn on a customer's account), attached as Exhibit A. --------------------------------------------------------------------------- The Notice also contains a list of current Association rules that require or permit communications between members and their customers for which electronic delivery may be used in accordance with the standards contained in the Commission releases. The Notice states that electronic delivery also may be used for a new rule or an amendment to an existing Rule that requires or permits communications between members and their customers unless NASDR specifies otherwise at the time of adoption of the rule or amendment. NASDR believes that use of electronic media to satisfy delivery requirements under Association rules will be beneficial to both members and their customers, particularly when conducted in accordance with Commission standards. 2. Statutory Basis The proposed rule change is consistent with the requirements of Section 15A(b)(6).\7\ The NASDR believes that providing standards that allow members to effectively and efficiently supply required documents to customers is consistent with this requirement. --------------------------------------------------------------------------- \7\ Section 15A(b)(6) requires that the rules of the Association 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. --------------------------------------------------------------------------- B. Self-Regulatory Organization's Statement on Burden on Competition NASDR 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. 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. The proposed rule change was reviewed by the NASDR Executive and Membership Committees. The members of these Committees were in favor of the proposed rule change. III. Date of Effectiveness of the Proposed Rule Change and Timing for Commission Action Within 35 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 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. Persons making written submissions should file six copies thereof with the Secretary, Securities and Exchange Commission, 450 Fifth Street, N.W., Washington, D.C. 20549. 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 inspection and copying in the Commission's Public Reference Room. Copies of such filing will also be available for inspection and copying at the principal office of the NASD. All submissions should refer to the file number in the caption above and should be submitted by October 2, 1997. For the Commission, by the Division of Market Regulation, pursuant to delegated authority, 17 CFR 200.30-3(a)(12). Margaret H. McFarland, Deputy Secretary. Exhibit A--NASD Notice to Members Electronic Delivery of Information Between Members and Their Customers Executive Summary This Notice sets forth the policy of NASD Regulation, Inc. (NASD Regulation) applicable to electronic delivery of information between members and their customers as required or permitted by National Association of Securities Dealers (NASD) Rules. Discussion Background On May 9, 1996, the Securities and Exchange Commission (SEC or Commission) issued an interpretive release publishing its views on the use of electronic media by broker-dealers for delivery of information.\1\ The SEC stated that broker-dealers and others may satisfy their delivery obligations under federal securities laws by using electronic media as an alternative to paper-based media within the framework established in its October 1995 interpretive release on the use of electronic media for delivery purposes.\2\ The SEC also indicated that an electronic communication from a customer to a broker-dealer generally would satisfy the requirements for written consent or acknowledgment under the federal securities laws. --------------------------------------------------------------------------- \1\ See Securities Exchange Act Release No. 37182, May 9, 1996; 61 FR 24644 (May 15, 1996) (May 1996 Release). The release also contained a list of current Rules to which broker-dealers apply the guidance provided in the interpretation. \2\ See Securities Act Release No. 7233, Oct. 6, 1995; 60 FR 53458 (October 13, 1995) (October 1995 Release). --------------------------------------------------------------------------- NASD Regulation will permit members that wish to electronically transmit documents that they are required or permitted to furnish to customers under NASD Rules to do so, provided they adhere to the standards contained in the SEC Releases summarized below. Members also may receive electronic communications from customers. Members are urged to review the May 1996 and October 1995 Releases in their entirety to ensure they comply with all aspects of the SEC's electronic delivery requirements. SEC Releases According to the standards established by the SEC, broker- dealers may use electronic media to satisfy their delivery obligations, provided the electronic communication satisfies the following principles: [[Page 47860]] Notice: The electronic communication should provide timely and adequate notice to customers that the information is available electronically. If necessary, broker-dealers should consider supplementing the electronic communication with another communication that would provide notice similar to that provided by delivery in paper through the postal mail that information has been sent that the recipient may wish to review. Access: Customers who are provided information through electronic delivery should have access to that information substantially equivalent to that which would be provided if the information were delivered in paper form (i.e., the electronically transmitted document must convey all material and required information). For instance, if a paper document is required to present information in a certain order, then the information delivered electronically should be in substantially the same order. The use of a particular electronic medium should not be so burdensome that intended recipients cannot effectively access the information provided. A recipient should have the opportunity to retain the information through the selected medium or have ongoing access equivalent to personal retention.\3\ Also, as a matter of policy, the SEC believes that a person who has a right to receive a document under the federal securities laws and chooses to receive it electronically should be provided with a paper version of the document if consent to receive documents electronically is revoked or upon specific request.\4\ --------------------------------------------------------------------------- \3\ The SEC stated that the ability to download the document or print from the electronic medium would be sufficient to satisfy this need. \4\ See May 1996 Release, n.17. --------------------------------------------------------------------------- Evidence to Show Delivery: Broker-dealers must have reason to believe that electronically delivered information will result in the satisfaction of the delivery requirements under the federal security laws. Broker-dealers should consider the need to establish procedures to ensure that applicable delivery obligations are met, and should take reasonable precautions to ensure that information transmitted using either electronic or paper media is delivered as intended. Broker-dealers may be able to evidence satisfaction of delivery obligations, for example, by: (1) Obtaining the intended recipient's informed consent \5\ to delivery through a specified electronic medium, and ensuring that the recipient has appropriate notice and access; --------------------------------------------------------------------------- \5\ The SEC described an informed consent as one that specifies the electronic medium or source through which the information will be delivered and the period during which the consent will be effective, and describes the information that will be delivered using such means. Except where manual consent is required under the Penny Stock Rules (see discussion infra), broker-dealers may obtain consents either manually or electronically. See May 1996 Release, n.23. --------------------------------------------------------------------------- (2) Obtaining evidence that the intended recipient actually received the information, such as by an electronic mail return- receipt or by confirmation that the information was accessed, downloaded, or printed; or (3) Disseminating information through certain facsimile methods. The SEC also made the following statements regarding the communication of personal financial information (e.g., confirmations and account statements). Confidentiality and Security: Broker-dealers sending personal financial information through electronic means or in paper form should take reasonable precautions to ensure the integrity, confidentiality, and security of that information. Broker-dealers transmitting personal financial information electronically must tailor those precautions to the medium used in order to ensure that the information is reasonably secure from tampering or alteration. Consent: Prior to delivering personal financial information electronically, the broker-dealer must notify the intended recipient that the information will be delivered electronically and obtain the recipient's informed consent. The customer's consent may be made either by a manual signature or by electronic means. The SEC also stated that an electronic communication from a customer to a broker-dealer will satisfy requirements under certain Commission Rules to receive or obtain written customer consent or acknowledgment.\6\ Further, the SEC reminded broker-dealers that they must reasonably supervise firm personnel to prevent violations, and suggested that firms should evaluate the need for systems and procedures to deter or detect misconduct by firm personnel in connection with the delivery of information, whether by electronic or paper means. --------------------------------------------------------------------------- \6\ The SEC, however, cautioned broker-dealers that they should be aware of their responsibilities to prevent unauthorized transactions. In this regard, the Commission stated its belief that broker-dealers should have reasonable assurance that the response received from a customer is authentic. The SEC also will continue to require broker-dealers to obtain the manual signature of customers on certain disclosure documents required under the Penny Stock Rules. See May 1996 Release, nn.23, 29, & 50. --------------------------------------------------------------------------- The SEC release stated that the above standards are intended to permit broker-dealers to comply with their delivery obligations under the federal securities laws when using electronic media. While compliance with the guidelines is not mandatory for the electronic delivery of non-required information that, in some cases, is being provided voluntarily to customers, NASD Regulation believes adherence to the guidelines should be considered, especially with respect to documents furnished pursuant to agreements or other specific arrangements with customers. Conclusion A list of current NASD Conduct Rules, Marketplace Rules, and Procedural Rules that require or permit communications between members and their customers for which electronic delivery may be used in accordance with the standards set forth in the SEC May 1996 and October 1995 Releases is set forth below. The summary of delivery obligations provided is intended for reference only, and is not intended to be a statement of all requirements under the Rules listed. NASD Regulation believes this list is complete. The interpretation set forth in this Notice also will apply to a new Rule or an amendment to an existing Rule that requires or permits communications between members and their customers unless NASD Regulation specifies otherwise at the time of adoption of the Rule or amendment. NASD Rules That Require or Permit Delivery of Information Between Firms and Customers Conduct Rules Rule 2210(d)(2)(B) (i), (ii), and (iv) (Communications with the Public; Standards Applicable to Communications with the Public; Specific Standards; Recommendations) requires a member to disclose certain ``conflicts of interest'' situations, if applicable, when making a recommendation; requires a member to provide, or offer to furnish upon request to the customer, available investment information to support a recommendation; and allows a member to offer to furnish a list of all recommendations made within the past year or over longer periods of time. Rule 2220(d)(2)(D)(i) (Options Communications with the Public; Standards Applicable to Communications with the Public; Specific Standards) requires a member to state in sales literature pertaining to options that supporting documentation for any claims, comparisons, recommendations, statistics, or other technical data will be supplied upon request. Rule 2230 (Confirmations) requires a member at or before the completion of each transaction to give or send to a customer written notification disclosing the member's role and other facts in connection with the transaction. In addition, if the member was acting as a broker for the customer, the member must disclose from whom the security was purchased or to whom it was sold or the fact that such information will be furnished upon request of the customer. IM-2230 (``Third Market'' Confirmations) requires a member that acts as a broker for customers in listed securities in the ``third market'' to provide certain disclosures in a legend on the confirmation to the customer. Rule 2240 (Disclosure of Control Relationship with Issuer) requires a member who has a control relationship with the issuer of the security being purchased or sold to provide written disclosure of the relationship to the customer at or before the completion of the transaction. Rule 2250 (Disclosure of Participation or Interest in Primary or Secondary Distribution) requires a member to provide written disclosure to the customer at or before completion of a transaction in a primary or secondary distribution of the security, if the member is participating or has an interest in the distribution. Rule 2260 (Forwarding of Proxy and Other Materials) requires a member to forward proxy materials, annual reports, information statements, and other material to each beneficial owner of shares of a stock held by the member. Rule 2270(a) (Disclosure of Financial Condition to Customers) requires that, upon [[Page 47861]] request, a member must make available to inspection by any bona fide regular customer financial condition information disclosed in its most recent balance sheet. Rule 2310 (a) and (b) (Recommendations to Customers (Suitability)) requires a member to make a suitability determination based on information disclosed by the customer as to his other security holdings and his financial situation and need and requires a member to make reasonable efforts to obtain specified information concerning non-institutional customers. IM-2310-2(e) (Fair Dealing with Customers with Regard to Derivative Products or New Financial Products) requires a member to make every effort to make customers aware of the pertinent information regarding certain products. To meet this obligation, members may deliver written documents to the customer under certain circumstances. Rule 2330(c) (Customers' Securities or Funds; Authorization to Lend) requires a member to obtain from a customer a written authorization permitting the lending of securities carried by the member. Rule 2330(f)(2) (D) and (G) (Customer's Securities or Funds; Sharing in Accounts; Extent Permissible) requires that a compensation arrangement to share profits in an account must be set forth in a written agreement executed by the customer and the member, and that the member must disclose to the customer all material information relating to the arrangement, including the method of compensation and potential conflicts of interest that may result from the compensation formula. Rule 2340(a) (Customer Account Statements) requires delivery of a statement of account containing a description of any securities positions, money balances, or account activity to each customer whose account had a security position, money balance, or account activity during the period since the last statement was sent to the customer (See May 1996 Release which covers confirmations of transactions pursuant to Securities Exchange Act Rule 10b-10). Rule 2510(b) (Discretionary Accounts; Authorization and Acceptance of Account) requires the customer's prior written authorization before a member may exercise discretionary power in a customer's account. Rule 2510(d) (Discretionary Accounts; Exceptions) allows an exception from the requirements of the rule under certain circumstances for members utilizing negative response letters for bulk exchanges of net asset value of money market mutual funds. Rule 2710(c)(8)(A) (Corporate Financing Rule--Underwriting Terms and Arrangements; Underwriting Compensation and Arrangements; Conflicts of Interest) requires disclosure of conflicts of interest and the name of the qualified independent underwriter assuming the role of pricing the offering and conducting due diligence. Rule 2720 (d) and (h) (Distributions of Securities of Members and Affiliates--Conflicts of Interest; Disclosure and Periodic Reports) requires a member to make certain disclosures in the registration statement, offering circular, or similar document and requires a member that makes a distribution to the public of its securities pursuant to this Rule to send to each of its shareholders or investors: (1) quarterly, a summary statement of its operations and (2) annually, independently audited and certified financial statements. Rule 2720(k) (Distributions of Securities of Members and Affiliates--Conflicts of Interest; Suitability) requires a member underwriting an issue of securities where a conflict of interest exists to make a suitability determination based on information furnished concerning the customer's investment objectives, financial situation, and needs. Rule 2720(l) (Distributions of Securities of Members and Affiliates--Conflicts of Interest; Discretionary Accounts) requires specific written approval of the customer prior to execution in a discretionary account of a transaction in securities issued by a member or an affiliate of a member, or by a company with which a member has a conflict of interest. Rule 2730(b) (Securities Taken in Trade) defines the term ``taken in trade'' as a purchase by a member as principal, or as agent for the account of another, of a security from a customer pursuant to an agreement or understanding that the customer purchase securities from the member which are part of a fixed price offering. Rule 2810(b)(2) (Direct Participation Programs; Requirements; Suitability) requires a member to obtain information from a participant concerning his investment objectives, other investments, financial situation, and needs before making a recommendation. Rule 2810(b)(3)(D) (Direct Participation Programs; Requirements; Disclosure) requires that prior to executing a purchase transaction in a direct participation program, a member must inform the prospective participant of all pertinent facts relating to the liquidity and marketability of the program during the term of the investment. Rule 2830(n) (Investment Company Securities; Disclosure of Deferred Sales Charges) requires, in addition to the disclosures required by Rule 2230, additional disclosure on written confirmations if the transaction involves the purchase of shares of any investment company that imposes a deferred sales charge on redemption. In addition, a specified legend on the confirmation is required. Rule 2845 (Discretionary Accounts) requires a customer's prior written authorization for trading of warrants in a discretionary account, pursuant to the requirements of Options Rule 2860(b)(18). Rule 2848 (Communications with the Public and Customers Concerning Index Warrants, Currency Index Warrants, and Currency Warrants). The requirements of Rule 2220(d)(2)(D)(i) apply to communications to the public and customers concerning warrants. Rule 2848, therefore, requires the member to state in its sales literature that supporting documentation for any claims on behalf of the warrants will be supplied upon request. Rule 2860(b)(11) (Options; Requirements; Delivery of Current Disclosure Document) requires delivery of the appropriate Options Clearing Corporation disclosure document to each customer at or prior to the time the customer's account is approved for options trading. Thereafter, delivery must be made to each customer of amendments or revisions to the disclosure document. Rule 2860(b)(12) (Options; Requirements; Confirmations) requires members to promptly furnish customers with a written confirmation of each transaction in option contracts. Rule 2860(b)(15) (Options; Requirements; Statements of Account) requires a member to send monthly statements to options account holders. Rule 2860(b)(16)(A) (Options; Requirements; Opening of Accounts: Approval Required) prohibits a member from accepting an options order from a customer or from approving a customer's account for options trading unless the broker-dealer has furnished to the customer the appropriate options disclosure document(s). Rule 2860(b)(16)(B) (Options; Requirements; Opening of Accounts; Diligence in Opening Accounts) requires a member to exercise due diligence to ascertain the essential facts relative to a customer before approving a customer's account for options trading. Rule 2860(b)(16)(C) (Options; Requirements; Opening of Accounts: Verification of Customer Background and Financial Information) requires that background and financial information on every new options account natural person customer be sent to the customer for verification within fifteen days after the account is approved for options trading. Rule 2860(b)(16)(D) (Options; Requirements; Opening of Accounts; Account Agreement) requires a member to obtain from the customer a written agreement that the customer is aware of and agrees to be bound by the NASD Rules applicable to the trading of option contracts within fifteen days after a customer's account has been approved for trading of options contracts. Rule 2860(b)(16)(E)(v) (Options; Requirements; Opening of Accounts: Uncovered Short Option Contracts) requires that a short written description of the risks inherent in writing uncovered short option transactions must be furnished to applicable customers. IM-2860-2 (Diligence in Opening Options Accounts) Paragraph (a) requires members to seek to obtain certain information at a minimum with respect to options customers who are natural persons in order to fulfill their obligations under Rule 28860(b)(16)(b). Paragraph (c) recommends that members consider utilizing a standard account approval form so as to ensure the receipt of all required information. Paragraph (e) states that the requirements of Rule 2860(b)(16)(C), regarding initial and subsequent verification of customer background and financial information, can be satisfied by sending to the customer the information required in paragraphs (a)(1) through (a)(6) of IM-2860-2 and providing the customer with an opportunity to correct or complete the information. Rule 2860(b)(18)(A) (Options; Requirements; Discretionary Accounts; [[Page 47862]] Authorization and Approval) requires the written authorization of a customer before a member may exercise any discretionary power with respect to trading an options contract in a customer account. Rule 2860(b)(19) (Options; Requirements; Suitability) prohibits a member from recommending an options transaction unless the member has reasonable grounds to believe based on the information furnished by the customer that the recommended transaction is not unsuitable for the customer. Rule 2860(b)(23)(C)(i) (Options; Requirements; Tendering Procedures for Exercise of Options; Allocation of Exercise Assignment Notices) requires notification to customers of the method used to allocate exercise notices to its customers' accounts. Rule 3110(c) (Books and Records; Customer Account Information) requires members to obtain specified customer information. Rule 3110(f)(3) (Books and Records; Requirements when Using Predispute Arbitration Agreements with Customers) requires that a copy of the agreement containing a predispute arbitration clause must be given to the customer, who must acknowledge receipt on the agreement or on a separate document. Rule 3110(g)(2) and (3) (Books and Records; Telemarketing Requirements) requires members to obtain written customer authorization before obtaining a check drawn on a customer's account. Rule 3230(d) (Clearing Agreements) requires notification upon the opening of an account to each customer whose account is introduced on a full disclosed basis of the existence of the clearing or carrying agreement. Marketplace Rules: The Nasdaq Stock Market Rules Rule 4643 (Customer Confirmations) prohibits members from effecting transactions in Nasdaq SmallCap Market securities unless, at or before completion of the transaction, the member gives or sends the customer written notification disclosing specified information. Procedural Rules: Compliants, Investigations and Sanctions Rule 8110 (Availability to Customers of Certificate, By-Laws and Rules) requires a member to provide customer access to copies of the NASD Certificate of Incorporation, By-Laws, and Rules. Procedural Rules: Uniform Practice Code Rule 11860(a)(3) and (4) (Acceptance and Settlement of COD Orders) requires a member to deliver to the customer a confirmation, or all relevant data customarily contained in a confirmation not later than the close of business on the next business day after any such execution and to obtain an agreement from the customer to furnish instructions regarding the receipt or delivery of the securities involved in the transaction. Rule 11870(c) (Customer Account Transfer Contracts; Transfer Instructions): customers must be informed of the conditions for account transfer and must authorize the transfer. * * * * * Questions concerning this Notice may be directed to Mary Revell, Assistant General Counsel, NASD Regulation, at (202) 728-8203. [FR Doc. 97-24140 Filed 9-10-97; 8:45 am] BILLING CODE 8010-01-M