POLICY STATEMENT IN FORCE FROM JANUARY 3, 2019 TO JANUARY 4, 2022
Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 1
Last amendment in force on January 3, 2019
This document has no official status
POLICY STATEMENT TO REGULATION 81-107 RESPECTING INDEPENDENT
REVIEW COMMITTEE FOR INVESTMENT FUNDS
INTRODUCTION
This Policy Statement contains commentaries on rules included in Regulation 81-107
respecting Independent Review Committee for Investment Funds (chapter V-1.1, r. 43)
(“the Regulation”).
The commentaries may explain the implications of a rule, included in the Regulation,
offer examples or indicate different ways to comply with a rule. They may expand on a
particular subject without being exhaustive. The commentaries are not legally binding,
but they do reflect the views of the Canadian Securities Administrators (the CSA or we).
The numbering of the sections included in this Policy Statement refers to those of the
Regulation.
PART 1
DEFINITIONS AND APPLICATION
1.1. Investment funds subject to Regulation
Commentary to section 1.1 of the Regulation
- The Regulation applies to all publicly offered mutual funds and non-redeemable
investment funds. Investment funds subject to the Regulation include:
- labour sponsored or venture capital funds;
- scholarship plans;
- mutual funds and closed-end funds listed and posted for trading on a
stock exchange or quoted on an over-the-counter market; and
- investment funds not governed by Regulation 81-102 respecting
Investment Funds (chapter V-1.1, r. 39).
- The Regulation does not regulate mutual funds that are not reporting issuers
(commonly referred to as pooled funds), for example, mutual funds that sell securities to
the public only under capital raising exemptions in securities legislation.
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1.2. Definition of “conflict of interest matter”
Commentary to section 1.2 of the Regulation
- Section 5.1 of the Regulation requires that a manager refer all conflict of interest
matters to the independent review committee (IRC).
- The CSA do not consider the “reasonable person” test described in
paragraph 1.2(a) of the Regulation to capture inconsequential matters. It is expected
that, among the factors the manager will look to for guidance to identify conflict of
interest matters caught by the Regulation, will be industry best practices. The CSA
expect, however, each manager to consider the nature of its investment fund operations
when making its decisions about which conflict of interest matters it faces for the funds it
manages.
- The types of conflicts of interest faced by the portfolio manager or portfolio
adviser (or sub-adviser) or any other entity related to the manager the Regulation
captures relate to the decisions made on behalf of the investment fund that may affect
or influence the manager's ability to make decisions in good faith and in the best
interests of the investment fund. The Regulation is not intended to capture the conflicts
of interest at the service provider level generally.
The CSA expect the manager to consider whether a particular portfolio manager
or portfolio adviser or any other “entity related to the manager” would have any conflicts
of interest falling within the definition.
For example, paragraph 1.2(a) of the Regulation might, depending on the
circumstances, capture these conflicts of the portfolio manager or portfolio adviser:
- portfolio management processes for the investment fund, including
allocation of investments among a family of investment funds; and
- trading practices for the investment fund, including negotiating soft dollar
arrangements with dealers with whom the adviser places portfolio transactions for the
investment fund.
- The CSA contemplate that an “entity related to the manager” will have its own
policies and procedures to address any conflicts of interest in its operations. It is
expected the manager will make reasonable inquiries of these policies and procedures.
The conflicts of interest facing these entities, including any third party portfolio manager
or portfolio adviser, may affect, or be perceived to affect, the manager's ability to make
decisions in the best interests of the investment fund. The manager is expected to refer
such conflicts to the IRC under the Regulation.
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5. For greater certainty, paragraph 1.2(b) of the Regulation requires that a “conflict
of interest matter” includes any course of action that the investment fund, the manager
or an entity related to the manager would otherwise be restricted or prohibited from
proceeding with because of a conflict of interest or self-dealing prohibition in securities
legislation. These include the types of transactions described under subsection 5.2(1) of
the Regulation.
1.3. Definition of “entity related to the manager”
Commentary to section 1.3 of the Regulation
- The CSA consider an 'entity related to the manager in paragraph 1.3(a) of the
Regulation to include:
- the portfolio manager or portfolio adviser (or sub-adviser) of the
investment fund, including any third party portfolio manager or portfolio adviser;
- the administrator of a scholarship plan; and
- any person or company that can materially direct or affect the manager's
management or policies, including through contractual agreements or ownership of
voting securities.
1.4. Definition of “independent”
Commentary to section 1.4 of the Regulation
- Under subsection 3.7(3) of the Regulation, all members of the IRC must be
independent of the manager, the investment fund and entities related to the manager.
The CSA believe that all members must be independent because the principal function
of the IRC is to review activities and transactions that involve inherent conflicts of
interest between an investment fund and its manager. Given this role, it is important that
the members of the IRC are free from conflicting loyalties.
- While the members of the IRC should not themselves be subject to inherent
conflicts or divided loyalties, the CSA recognize that there may be inherent conflicts
relating to inter-fund issues where a single IRC acts for a family of investment funds. In
those cases, the Regulation requires members to conduct themselves in accordance
with their written charter and in accordance with the standard of care set out in the
Regulation.
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The CSA do not consider the IRC's ability to set its own reasonable
compensation to be a material relationship with the manager or investment fund under
subsection 1.4(1) of the Regulation.
3. A material relationship referred to in subsection 1.4(1) of the Regulation may
include an ownership, commercial, charitable, industrial, banking, consulting, legal,
accounting or familial relationship. The CSA expect managers and IRC members to
consider both past and current relationships when determining whether a material
relationship exists.
For example, depending on the circumstances, the following individuals may be
independent under section 1.4 of the Regulation:
- an independent member of an existing advisory board or IRC of an
investment fund;
- an independent member or former independent member of the board of
directors, or of a special committee of the board of directors, of an investment fund;
- a former independent member of the board of directors, or special
committee of the board of directors, of the manager;
- an individual appointed as a trustee for an investment fund; and
- an independent member of the board of directors, or of a special
committee of the board of directors, of a registered trust company that acts as trustee
for an investment fund.
By way of further example, the CSA consider it unlikely that the following
individuals would be independent under section 1.4 of the Regulation:
- a person who is or has recently been an employee or executive officer of
the manager or investment fund; and
- a person whose immediate family member is or has recently been an
executive officer of the manager or investment fund.
The CSA also consider that it would be rare that a member of the board of
directors, or special committee of the board of directors, of a manager could be
“independent” within the meaning of the Regulation. One such example of when a
member of the board of directors of a manager could be “independent” may be “owneroperated” investment funds, sold exclusively to defined groups of investors, such as
members of a trade or professional association or co-operative organization, who
directly or indirectly, own the manager. In the case of these investment funds, the CSA
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view the interests of the independent members of the board of directors of the manager
and investors as aligned.
1.5. Definition of “inter-fund self-dealing investment prohibitions”
No commentary.
1.6. Definition of “manager”
Commentary to section 1.6 of the Regulation
- The CSA are of the view that the term “manager” should be interpreted broadly.
The term “manager” is intended to include a group of members on the board of
an investment fund or the general partner of an investment fund organized as a limited
partnership, where it acts in the capacity of 'manager'/decision-maker.
- The CSA have, in connection with prospectus reviews, on occasion encountered
investment funds structured in unusual ways. The CSA may examine an investment
fund if it seems that it was structured to avoid the operation of the Regulation.
1.7. Definition of “standing instruction”
No commentary.
PART 2
FUNCTIONS OF THE MANAGER
2.1. Manager standard of care
Commentary to section 2.1 of the Regulation
- Section 2.1 of the Regulation introduces a required standard of care for
managers in certain jurisdictions and is intended to create a uniform standard of care
provision for managers of investment funds subject to the Regulation.
2.2. Manager to have written policies and procedures
Commentary to section 2.2 of the Regulation
- Section 2.2 of the Regulation contemplates that a manager should identify for
each investment fund the conflict of interest matters it expects will arise and that will be
required to be referred to the IRC under section 5.1 of the Regulation, and review its
policies and procedures for those matters with the IRC.
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Section 2.2 of the Regulation further requires the manager to establish policies
and procedures for other matters it expects will arise and that will be required by
securities legislation to be referred to the IRC, for example, certain reorganizations and
transfers of assets between related mutual funds under Part 5 of Regulation 81-102
respecting Investment Funds (chapter V-1.1, r. 39).
2. A manager is expected to establish policies and procedures that are consistent
with its obligations to the investment fund under securities legislation to make decisions
in the best interests of the fund. Paragraph 2.2(1)(a) of the Regulation is intended to
reinforce this obligation.
A manager that manages more than one investment fund may establish policies
and procedures for an action or category of actions for all of the investment funds it
manages. Alternatively, the manager may establish separate policies and procedures
for the action or category of actions for each of its investment funds, or groups of its
investment funds.
However structured, the CSA expect the written policies and procedures the
manager establishes to be designed to prevent any violations by the manager and the
investment fund of securities legislation in the areas that the Regulation addresses, and
to detect and promptly correct any violations that occur.
3. A manager is expected to follow the policies and procedures established under
section 2.2 of the Regulation. In referring a matter to the IRC under section 5.1 of the
Regulation, the CSA expect the manager to inform the IRC whether its proposed action
follows its written policies and procedures on the matter.
If an unanticipated conflict of interest matter arises for which the manager does
not have a policy and procedure, the CSA expect the manager to bring the matter and
its proposed action to the IRC for its review and input at the time the matter is referred
to the IRC.
4. Small investment fund families may require fewer written policies and procedures
than large fund complexes that, for example, have conflicts of interest as a result of
affiliations with other financial service firms.
2.3. Manager to maintain records
Commentary to section 2.3 of the Regulation
- Section 2.3 of the Regulation is intended to assist the CSA in determining
whether the manager is adhering to the Regulation, and in identifying weaknesses in
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the manager's policies and procedures if violations do occur. The CSA expect
managers to keep records in accordance with existing best practices.
2. A manager is expected under section 2.3 of the Regulation to keep minutes only
of any material discussions it has at meetings with the IRC or internally on matters
subject to the review of the IRC.
The CSA do not view section 2.3 of the Regulation or the Regulation as
preventing the IRC and manager from sharing record keeping and maintaining joint
records of IRC and manager meetings.
3. The CSA expect a manager to keep records of the actions it takes in respect of a
matter referred to the IRC. This includes any otherwise restricted or prohibited
transactions described in subsection 5.2(1) of the Regulation for which the manager
requires the IRC's approval under Part 6 of the Regulation or under Part 4 of Regulation
81-102 respecting Investment Funds (chapter V-1.1, r. 39).
2.4. Manager to provide assistance
No commentary.
PART 3
INDEPENDENT REVIEW COMMITTEE
3.1. Independent review committee for an investment fund
Commentary to section 3.1 of the Regulation
- A manager is expected to establish an IRC using a structure that is appropriate
for the investment funds it manages, having regard to the expected workload of that
committee. For example, a manager may to establish one IRC for each of the
investment funds it manages, for several of its investment funds, or for all of its
investment funds.
- The Regulation does not prevent investment funds from sharing an IRC with
investment funds managed by another manager. The Regulation also does not prevent
a third party from offering IRCs for investment funds. Managers of smaller families of
investment funds may find these to be cost-effective ways establish IRCs for their
investment funds.
3.2. Initial appointments
No commentary.
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3.3. Vacancies and reappointments
Commentary to section 3.3 of the Regulation
- Consistent with the manager's role to appoint the first members of an IRC, if at
any time the IRC has no members, the manager will also appoint the replacement
members. The CSA anticipate that the circumstances contemplated in subsection 3.3(5)
of the Regulation will occur rarely, such as in the event of a change of manager or
change in control of the manager. In these circumstances, managers should consider
their timely disclosure obligations under securities legislation.
- The manager may suggest candidates and may provide assistance to the IRC in
the selection and recruitment process when a vacancy arises. Subsection 3.3(3) of the
Regulation requires the IRC to consider the manager's recommendation, if any, when
filling a vacancy or reappointing a member of the IRC.
The CSA believe that allowing the IRC to select its own members and decide the
term a member can serve will foster independent-minded committees that will be
focussed on the best interests of the investment fund. The CSA also consider the
members of the IRC to be best-positioned to judge the manner in which a prospective
member can contribute to the effectiveness of the IRC.
- The maximum term limit of 6 years specified in subsection 3.3(4) of the
Regulation for a member to serve on an investment fund's IRC is intended to enhance
the independence and effectiveness of the IRC. An IRC may reappoint a member
beyond the maximum term, but only with the agreement of the manager.
3.4. Term of office
Commentary to section 3.4 of the Regulation
- To ensure continuity and continued independence from the manager, the CSA
recommend that the terms of all IRC members be staggered.
3.5. Nominating criteria
Commentary to section 3.5 of the Regulation
- Section 3.5 of the Regulation sets out the criteria the manager and the IRC must
consider before appointing a member of the IRC. Subject to these requirements, the
manager and the IRC may establish nominating criteria in addition to those set out in
section 3.5 of the Regulation.
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3.6. Written charter
Commentary to section 3.6 of the Regulation
- The CSA expect the written charter to set out the necessary policies and
procedures to ensure the IRC performs its role adequately and effectively and in
compliance with the Regulation. An IRC acting for more than one investment fund may
choose to establish a separate charter for each fund. Alternatively, an IRC may choose
to establish one charter for all of the investment funds it oversees or groups of
investment funds.
- The IRC should consider the specific matters subject to its review when
developing the policies and procedures to be set out in its charter.
- Without discussing all of the policies and procedures that may be set out in the
written charter, the CSA expect that the written charter will include the following:
- policies and procedures the IRC must follow when reviewing conflict of
interest matters,
- criteria for the IRC to consider in setting its compensation and expenses
and the compensation and expenses of any advisors employed by the IRC,
- a policy relating to IRC member ownership of securities of the investment
fund, manager or in any person or company that provides services to the investment
fund or the manager,
- policies and procedures that describe how a member of the IRC is to
conduct himself or herself when he or she faces a conflict of interest, or could be
perceived to face a conflict of interest, with respect to a matter being considered or to
be considered by the IRC,
- policies and procedures that describe how the IRC is to interact with any
existing advisory board or board of directors of the investment fund and the manager,
and
- policies and procedures that describe how any subcommittee of the IRC to
which has been delegated any of the functions of the IRC, is to report to the IRC.
- The manager and the IRC may agree that the IRC will perform functions in
addition to those prescribed by the Regulation and elsewhere in securities legislation.
The Regulation does not preclude those arrangements, nor does the Regulation
regulate those arrangements.
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3.7. Composition
Commentary to section 3.7 of the Regulation
- To ensure its effectiveness, a manager should consider the workload of the IRC
when determining its size. The CSA expect that the manager will seek the input of the
IRC prior to changing the size of the IRC.
- The CSA anticipate that the Chair of the IRC will lead IRC meetings, foster
communication among IRC members, and ensure the IRC carries out its responsibilities
in a timely and effective manner.
The CSA expect the IRC Chair will be the primary person to interact with the
manager on issues relating to the investment fund. An IRC Chair and the manager may
agree to have regular communication as a way for the IRC Chair to keep informed of
the operations of the investment fund between meetings, and of any significant events
relating to the investment fund.
- The requirement that all members of the IRC be independent does not preclude
the IRC from consulting with others who can help the members understand matters that
are beyond their specific expertise, or help them understand industry practices or
trends, for example.
3.8. Compensation
Commentary to section 3.8 of the Regulation
- Section 3.8 of the Regulation permits the manager to determine the amount and
type of compensation and expenses the IRC members will initially receive. To avoid
undue influence from the manager, subsection 3.8(2) of the Regulation requires that,
subsequent to the initial setting of compensation and other than in the unusual
circumstance described in subsection 3.3(5) of the Regulation, members of the IRC
have the sole authority for determining their compensation. The Regulation permits the
manager to recommend to the members of the IRC the amount and type of
compensation to be paid, and requires the IRC to consider that recommendation.
- The CSA expect the IRC and the manager to decide the IRC's compensation in a
manner consistent with good governance practices. Among the factors the IRC and
manager should consider when determining the appropriate level of compensation are
the following:
- the number, nature and complexity of the investment funds and the fund
families for which the IRC acts;
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- the nature and extent of the workload of each member of the IRC,
including the commitment of time and energy that is expected from each member; and
- industry best practices, including industry averages and surveys on IRC
compensation;
- the best interests of the investment fund.
- The CSA expect that the IRC and the manager will discuss any instance where
the IRC disagrees with the manager's recommendations under paragraph 3.8(b) of the
Regulation, in an attempt to reach an agreement that is satisfactory to both the IRC and
the manager.
3.9. Standard of care
Commentary to section 3.9 of the Regulation
- The standard of care for IRC members under section 3.9 of the Regulation is
consistent with the special relationship between the IRC and the investment fund.
The CSA consider the role of the members of the IRC to be similar to corporate
directors, though with a much more limited mandate, and therefore we would expect
any defences available to corporate directors to also be available to IRC members.
- The CSA consider the best interests of the investment fund referred to in
paragraph (1)(a) of section 3.9 of the Regulation to generally be consistent with the
interests of the securityholders in the investment fund as a whole.
- It is not the intention of the CSA to create a duty of care on the part of the IRC to
any other person under paragraph 3.9(1)(b) of the Regulation
3.10. Ceasing to be a member
Commentary to section 3.10 of the Regulation
- The CSA do not anticipate that the securityholder vote contemplated in
paragraph 3.10(2)(d) of the Regulation will be routine. When a manager calls a meeting
of securityholders to consider the removal of a member, subsection 3.10(7) of the
Regulation requires that the member will have an opportunity to respond to the
manager's notice.
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2. In the circumstances described in paragraphs 3.10(1)(b) and (c) of the
Regulation, all members of the IRC will cease to be members. This does not preclude
the new manager from reappointing the former members of the IRC under subsection
3.3(5) of the Regulation.
3. Paragraph 3.10(3)(a) of the Regulation is meant to exclude a situation where a
member may face, or be perceived to face, a conflict of interest with respect to a
specific conflict of interest matter the IRC is considering.
3.11. Authority
Commentary to section 3.11 of the Regulation
- The CSA recognize that utilizing the manager's staff and industry experts may be
important to help the members of the IRC deal with matters that are beyond the level of
their expertise, or help them understand different practices among investment funds.
While the Regulation does not require legal counsel or other advisers for the IRC
to be independent of the manager or the investment fund, there may be instances when
the members of the IRC believe they need access to counsel or advisers who are free
from conflicting loyalties. Paragraph 3.11(1)(b) of the Regulation gives the IRC the
discretion and authority to hire independent legal counsel and other advisers. The CSA
expect that the IRC will use independent advisors selectively and only to assist, not
replace, IRC decision-making. The CSA do not anticipate that IRCs will routinely use
external counsel and other advisers.
- Paragraph 3.11(1)(d) of the Regulation is intended to allow an IRC of more
than 3 members to delegate any of its functions, except the removal of an IRC member,
to a subcommittee of at least three members. The CSA expect in such instances that
the written charter of the IRC will include a defined mandate and reporting requirements
for any subcommittee.
The CSA do not consider delegation by the IRC of a function to a subcommittee
to absolve the IRC from its responsibility for the function.
- Subsection 3.11(3) of the Regulation specifies that the IRC may inform the
securities regulatory authority of any concerns or issues that it may not otherwise be
required to report. For example, the IRC may be concerned if very few matters have
been referred by the manager for review, or it may have found, or have reasonable
grounds to suspect, a breach of securities legislation has occurred. However, the IRC
has no obligation to report matters other than those prescribed by the Regulation or
elsewhere in securities legislation.
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4. The CSA do not consider that section 3.11 of the Regulation or the Regulation
prevents the manager from communicating with the securities regulatory authorities with
respect to any matter.
3.12. Decisions
Commentary to section 3.12 of the Regulation
- Section 3.12 of the Regulation requires a decision of the members of the IRC to
represent the majority. Should the IRC find itself with 2 members, subsection 3.12(2) of
the Regulation permits the IRC to continue to make decisions on conflict of interest
matters provided the remaining 2 members agree.
3.13. Fees and expenses to be paid by the investment fund
Commentary to section 3.13 of the Regulation
- A manager is expected to allocate the costs associated with the IRC on an
equitable and reasonable basis amongst the investment funds for which the IRC acts.
The Regulation does not prohibit a manager from reimbursing the investment
fund for any of the costs associated with compliance with the Regulation. It is expected
that the prospectus will disclose whether or not the manager will reimburse the
investment fund.
- The CSA do not expect costs that the manager or investment fund would
ordinarily incur in the operation of the investment fund without the presence of the IRC
(for example, rent) to be charged to the investment fund under section 3.13 of the
Regulation. Among the costs the CSA expect will be charged to the investment fund
under section 3.13 of the Regulation are the following:
- the compensation and expenses payable to the members of the IRC and
to any independent counsel and other advisers employed by the IRC;
- the costs of the orientation and continuing education of the members of
the IRC; and
- the costs and expenses associated with a special meeting of
securityholders called by the manager to remove a member or members of the IRC.
3.14. Indemnification and insurance
Commentary to section 3.14 of the Regulation
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- The Regulation requires that members of an IRC be accountable for their
actions. At the same time, section 3.14 of the Regulation does not prevent an
investment fund or a manager from limiting a member's financial exposure through
insurance and indemnification.
- Section 3.14 of the Regulation permits an investment fund and the manager to
indemnify and purchase insurance coverage for the members of the IRC on terms
comparable to those applicable to directors of corporations. The broad goals underlying
the indemnity provisions are to allow for reimbursement for reasonable good faith
behaviour, thereby discouraging the hindsight application of perfection to the IRC's
actions.
Under section 3.14 of the Regulation, the investment fund is required to
indemnify an IRC member who has been sued and has successfully defended the
action, subject to certain conditions. If the IRC member does not defend the action
successfully, the investment fund and manager may indemnify the member in certain
circumstances. The intention of indemnity is to encourage responsible behaviour yet still
permit enough leeway to attract strong candidates.
The 2 conditions which must be satisfied in either instance under section 3.14 of
the Regulation for an IRC member to be indemnified are:
- the IRC member must have acted in a manner consistent with his or her
fiduciary duty with respect to the action or matter for which the IRC member is seeking
the indemnification; and
- the IRC member must have had reasonable grounds for believing that his
or her conduct was lawful.
The CSA expect any such coverage to be on reasonable commercial terms.
- It is open to members of the IRC to negotiate contractual indemnities with the
manager and the investment fund provided the protection is permissible under
section 3.14 of the Regulation.
3.15. Orientation and continuing education
Commentary to section 3.15 of the Regulation
- The CSA expect members of the IRC to regularly participate in educational or
informational programs that may be useful to the members in understanding and
fulfilling their duties.
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Section 3.15 of the Regulation sets out only the minimum educational programs
that a manager and IRC are expected to provide for members of the IRC. Educational
activities could include presentations, seminars or discussion groups conducted by:
- personnel of the investment fund or manager,
- outside experts,
- industry groups,
- representatives of the investment fund's various service providers, and
- educational organizations and institutions.
- The CSA expect a discussion of a member's role referred to in
paragraph 3.15(1)(b) of the Regulation to include a reference to the commitment of time
and energy that is expected from the member.
PART 4
FUNCTIONS OF INDEPENDENT REVIEW COMMITTEE
4.1. Review of matters referred by manager
Commentary to section 4.1 of the Regulation
- The Regulation requires the IRC only to consider matters referred to it by the
manager that involve or may be perceived to involve a conflict of interest for the
manager between its own interests and its duty to manage an investment fund.
Securities legislation also requires the IRC to consider other matters. For
example, a change in a mutual fund's auditor and certain reorganizations and transfers
of assets between related mutual funds under Part 5 of Regulation 81-102 respecting
Investment Funds (chapter V-1.1, r. 39) require the review and prior approval of the IRC
for the manager to proceed.
- The manager and the IRC may agree that the IRC will perform functions in
addition to those prescribed by the Regulation and elsewhere in securities legislation.
The Regulation does not preclude those arrangements, nor does the Regulation
regulate those arrangements.
- Subsection 4.1(3) of the Regulation permits the IRC to decide who, other than
IRC members, may attend any IRC meeting other than the meeting referred to in
subsection 4.1(4) of the Regulation. Subsection 4.1(3) of the Regulation also does not
preclude the IRC from receiving oral or written submissions from the manager or from
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holding meetings with representatives of the manager or an entity related to the
manager or any other person not independent under the Regulation. The CSA believe
utilizing the manager's staff and industry experts may be important to help the members
of the IRC understand matters that are beyond their specific expertise, or help them
understand different practices among investment funds.
4. The requirement that the IRC hold at least one meeting without anyone else
present (including management of the investment fund) is intended to give the members
of the IRC an opportunity to speak freely about any sensitive issues, including any
concerns about the manager.
The CSA are of the view that subsection 4.1(4) of the Regulation is satisfied if the
IRC holds a portion of any meeting annually without the presence of the manager, any
representative of the manager or any entity related to the manager.
4.2. Regular assessments
Commentary to section 4.2 of the Regulation
- Section 4.2 of the Regulation sets out the minimum assessments the
independent review committee must perform. Subject to these requirements, the IRC
may establish a process for (and determine the frequency of) additional assessments as
it sees fit.
- The annual self-assessment by the IRC should improve performance by
strengthening each member's understanding of his or her role and fostering better
communication and greater cohesiveness among members.
- When evaluating individual performance, it is expected that the IRC consider
factors such as the member's attendance and participation in meetings, continuing
education activities and industry knowledge. The manager may also provide IRC
members with feedback which the IRC may consider.
It is expected the self-assessment should focus on both substantive and
procedural aspects of the IRC's operations. When evaluating the IRC's structure and
effectiveness, the IRC should consider factors such as the following:
- the frequency of meetings;
- the substance of meeting agendas;
- the policies and procedures that the manager has established to refer
matters to the IRC;
POLICY STATEMENT IN FORCE FROM JANUARY 3, 2019 TO JANUARY 4, 2022
Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 17
- the usefulness of the materials provided to the members of the IRC;
- the collective experience and background of the members of the IRC;
- the number of funds the IRC oversees; and
- the amount and form of compensation the members receive from an
individual investment fund and in aggregate from the fund family.
- The CSA expect the members of an IRC to respond appropriately to address any
weaknesses found in a self-assessment. For example, it may be necessary to improve
the IRC members' continuing education, recommend ways to improve the quality and
sufficiency of the information provided to them, or recommend to the manager
decreasing the number of investment funds under the IRC's oversight.
In rare circumstances, the IRC may consider removing a member of the IRC as
contemplated under paragraph 3.10(2)(c) of the Regulation as a result of the selfassessment.
4.3. Reporting to the manager
No commentary.
4.4. Reporting to securityholders
Commentary to section 4.4 of the Regulation
- The report to be filed with the securities regulatory authorities should be filed on
the SEDAR group profile number of the investment fund as a continuous disclosure
document. The CSA expect that the investment fund will pay any reasonable costs
associated with the filing of the report.
- It is expected the report will be displayed in an easily visible location on the home
page of the website of the investment fund, the investment fund family or the manager,
as applicable. The CSA expect the report to remain on the website at least until the
posting of the next report.
- The disclosure required in subparagraph 4.1(1)(a)(iii) of the Regulation is
expected to be provided only in instances where a member could reasonably be
perceived to not be 'independent' under the Regulation.
4.5. Reporting to securities regulatory authorities
Commentary to section 4.5 of the Regulation
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Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 18
- Subsection 4.5(1) of the Regulation captures a breach of a condition imposed for
an otherwise prohibited or restricted transaction described in subsection 5.2(1) of the
Regulation, for which the manager has acted under Part 6 of the Regulation or under
Part 4 of Regulation 81-102 respecting Investment Funds (chapter V-1.1, r. 39). This
includes a breach of a condition imposed by the IRC as part of its approval (including a
standing instruction), or, for example, any conditions imposed for inter-fund trading
under section 6.1 of the Regulation or section 4.3 of Regulation 81-102 respecting
Investment Funds, for transactions in securities of related issuers under section 6.2 of
the Regulation, and for purchases of securities underwritten by related underwriters
under section 4.1 of Regulation 81-102 respecting Investment Funds.
The CSA consider that a breach of a condition imposed by securities legislation
(including the Regulation) or by the IRC in a transaction described in subsection 5.2(1)
of the Regulation will result in the transaction having been made in contravention of
securities legislation. In such instances, the securities regulatory authorities may
consider taking various action, including requiring the manager to unwind the
transaction and pay any costs associated with doing so.
- The CSA expect that the IRC will include in its notification the steps the manager
proposes to take, or has taken, to remedy the breach, if known.
- Notification under section 4.5 of the Regulation is not intended to be a
mechanism to resolve disputes between an IRC and a manager, or to raise
inconsequential matters with the securities regulatory authorities.
- The CSA do not view section 4.5 of the Regulation or the Regulation as
preventing the manager from communicating with the securities regulatory authorities
with respect to any matter.
4.6. Independent review committee to maintain records
Commentary to section 4.6 of the Regulation
- Section 4.6 of the Regulation sets out the minimum requirements regarding the
record keeping by an IRC. The CSA expect IRCs to keep records in accordance with
existing best practices.
- The IRC is expected under paragraph (b) to keep minutes only of any material
discussions it has at meetings with the manager or internally on matters subject to its
review.
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Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 19
The CSA do not view section 4.6 of the Regulation or the Regulation as
preventing the IRC and manager from sharing record keeping and maintaining joint
records of IRC and manager meetings.
3. The CSA expect the IRC to keep records of any actions it takes in respect of a
matter referred to it, in particular any transaction otherwise prohibited or restricted by
securities legislation, as described in subsection 5.2(1) of the Regulation, for which the
manager has sought the approval of the IRC.
PART 5
CONFLICT OF INTEREST MATTERS
5.1. Manager to refer conflict of interest matters to independent review
committee
Commentary to section 5.1 of the Regulation
- Section 5.1 of the Regulation recognizes that a manager may not be able to
objectively determine whether it is acting in the best interests of the investment fund
when it has a conflict of interest. Section 5.1 of the Regulation requires managers to
refer all conflict of interest matters - not just those subject to prohibitions or restrictions
under securities legislation - to the IRC so that an independent perspective can be
brought to bear on the manager's proposed action.
A decision tree for different types of conflict of interest matters is set out in
Appendix A to this Policy Statement.
While the CSA expect the IRC to bring a high degree of rigour and skeptical
objectivity to its review of conflict of interest matters, the CSA do not consider it the role
of the IRC to second-guess the investment or business decisions of a manager or an
entity related to the manager.
- Section 5.1 of the Regulation sets out how the manager must proceed when
faced with a conflict of interest matter.
Referring proposed actions involving conflict of interest matters to the IRC for its
review is not considered by the CSA to detract from the manager's obligations to the
investment fund under securities legislation to make decisions in the best interests of
the fund. Subparagraph 5.1(a)(i) of the Regulation is intended to reinforce this
obligation.
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Regulation 81-107 January 3, 2019 PAGE 20
3. In referring a matter to the IRC, a manager is expected to inform the IRC whether
its proposed action follows its written policies and procedures on the matter under
section 2.2 of the Regulation.
If an unanticipated conflict of interest matter arises for which the manager does
not have an existing written policy and procedure, the CSA expect the manager to bring
the matter and its proposed action to the IRC for its review and input at the time the
matter is referred to the IRC.
4. There may be matters that are subject to a securityholder vote that also involve a
“conflict of interest matter” under the Regulation. For example, increases in the charges
of the manager to the mutual fund will be a conflict of interest matter as well as a matter
subject to a securityholder vote under Part 5 of Regulation 81-102 respecting
Investment Funds (chapter V-1.1, r. 39). For these matters, subsection 5.1(2) of the
Regulation requires a manager to refer the matter first to the IRC before seeking the
approval of securityholders, and to include a summary of the IRC's decision in the
written notice to securityholders.
5.2. Matters requiring independent review committee approval
Commentary to section 5.2 of the Regulation
- For the transactions described in subsection 5.2(1) of the Regulation, provided
the manager receives the IRC's approval under section 5.2 of the Regulation, and
satisfies the additional conditions imposed under the applicable sections of Part 6 of the
Regulation or Part 2 and Part 4 of Regulation 81-102 respecting Investment Funds
(chapter V-1.1, r. 39), the manager will be permitted to proceed with the action without
obtaining regulatory exemptive relief.
The IRC may give its approval for certain actions or categories of actions in the
form of a standing instruction as described in section 5.4 of the Regulation. If no
standing instruction is in effect, the manager is required to seek the IRC's approval prior
to proceeding with any action set out in subsection 5.2(1) of the Regulation. An IRC
may consider as guidance any conditions in prior exemptive relief orders, waivers or
approvals obtained from the securities regulatory authorities when contemplating the
appropriate terms and conditions in its approval.
- If the IRC does not approve a proposed action described in subsection 5.2(1) of
the Regulation, the manager is not permitted to proceed without obtaining exemptive
relief from the securities regulatory authorities. The CSA consider it in the best interests
of the investment fund, and ultimately investors, for the IRC to be able to stop any
proposed action which does not meet the test in subsection 5.2(2) of the Regulation.
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Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 21
3. The CSA would usually expect that, before the IRC approves a proposed action
described in subsection 5.2(1) of the Regulation, it will have requested from the
manager or others a report or certification to assist in its determination that the test in
subsection 5.2(2) of the Regulation has been met.
4. The CSA expect that the manager will discuss with the IRC any instance where
the IRC does not approve a proposed action, so that an alternative action satisfactory to
both the manager and the IRC can be found, if possible.
5. The CSA consider that the ability of the manager to seek the removal of a
member or members of the IRC under paragraph 3.10(2)(d) of the Regulation
sufficiently addresses any concern that a manager may have about an IRC's ongoing
refusal to approve matters.
5.3. Matters subject to independent review committee recommendation
Commentary to section 5.3 of the Regulation
- Section 5.3 of the Regulation captures all conflict of interest matters a manager
encounters other than those listed in subsection 5.2(1) of the Regulation. This includes
conflict of interest matters prohibited or restricted by securities legislation not specified
in subsection 5.2(1) of the Regulation, and a manager's business and commercial
decisions made on behalf of the investment fund that may be motivated, or be
perceived to be motivated, by the manager's own interests rather than the best interests
of the investment fund. Examples include:
- increasing charges to the investment fund for costs incurred by the
manager in operating the fund;
- correcting material errors made by the manager in administering the
investment fund;
- negotiating soft dollar arrangements with dealers with whom the manager
places portfolio transactions for the investment fund; and
- choosing to bring services in-house over using third-party service
providers.
The CSA expect that, in seeking guidance in identifying conflict of interest
matters caught by the Regulation, among the factors the manager will look to for
guidance to identify conflict of interest matters will be industry best practices. However,
the CSA also acknowledge that each manager will need to consider the nature of its
investment fund operations in determining a conflict of interest matter.
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Regulation 81-107 January 3, 2019 PAGE 22
2. The CSA expect the IRC's recommendation to state a positive or negative
response as to whether they view the proposed action as achieving a fair and
reasonable result for the investment fund.
3. For a proposed action in a conflict of interest matter under section 5.3 of the
Regulation that is prohibited or restricted by securities legislation (but not specified in
subsection 5.2(1) of the Regulation, a manager will still need to seek exemptive relief
from the securities regulatory authorities.
4. Subsection 5.3(2) of the Regulation recognizes that, in exceptional
circumstances, the manager may decide to proceed with a proposed course of action
despite a negative recommendation from the IRC. In such instances, subsection 5.3(2)
of the Regulation requires the manager to notify the IRC before proceeding with the
action. If the IRC determines that the proposed action is sufficiently important to warrant
notice to securityholders in the investment fund, the IRC has the authority to require the
manager to give such notification before proceeding with the action.
The CSA anticipate that the situation of a manager proceeding with a conflict of
interest matter, despite a negative recommendation by the IRC, will occur infrequently.
5. The notification referred to in subsection 5.3(5) of the Regulation should be filed
on the SEDAR group profile number of the investment fund as a continuous disclosure
document.
5.4. Standing instructions by the independent review committee
Commentary to section 5.4 of the Regulation
- Section 5.4 of the Regulation recognizes that there are certain actions or
categories of actions of the manager for which it may be appropriate for the IRC to
choose to provide a standing instruction. For example, this may include a manager's
ongoing voting of proxies on securities held by the investment fund when the manager
has a business relationship with the issuer of the securities, or, a manager's decision to
engage in inter-fund trading.
- The CSA expect that, before providing or continuing a standing instruction to the
manager for an action or category of actions, the IRC will have:
- reviewed the manager's written policies and procedures with respect to
the action or category of actions;
- requested from the manager or other persons a report or certification to
assist in deciding whether to give its approval or recommendation for the action or
POLICY STATEMENT IN FORCE FROM JANUARY 3, 2019 TO JANUARY 4, 2022
Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 23
category of actions under subsection 5.2(1) or 5.3(1) of the Regulation, as the case may
be;
- considered whether a standing instruction for the particular action or
category of actions is appropriate for the investment fund; and
- established very clear terms and conditions surrounding the standing
instruction for the action or category of actions.
An IRC may consider including in any standing instruction any terms or
conditions in prior exemptive relief orders, waivers or approvals obtained from the
securities regulatory authorities.
- As part of the IRC's review under subparagraph 5.4(2)(b)(ii) of the Regulation,
the IRC is expected to be mindful of its reporting obligation under section 4.5 of the
Regulation, which includes notifying the securities regulatory authorities of any instance
where the manager, in proceeding with an action, did not meet a condition imposed by
the IRC in its approval (this includes a standing instruction).
- Section 5.4 of the Regulation is intended to improve the flexibility and timeliness
of the manager's decisions concerning a proposed course of action in a conflict of
interest matter.
PART 6
EXEMPTED TRANSACTIONS
6.1. Inter-fund trades
Commentary to section 6.1 of the Regulation
- The term “inter-fund self-dealing investment prohibitions” is defined in section 1.5
of the Regulation. It is intended to capture the prohibitions in the securities legislation
and certain regulations of each securities regulatory authority regarding inter-fund
trades.
- Section 6.1 of the Regulation is intended to exempt investment funds from the
prohibitions in the securities legislation and certain regulations that preclude inter-fund
trades. It is not intended to apply to securities issued by an investment fund that are
purchased by another fund within the same fund family.
The CSA are of the view that section 6.1 of the Regulation applies to inter-fund
trades between fund families of the same manager provided the purchase or sale is
made in accordance with subsection 6.1(2) of the Regulation.
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Regulation 81-107 January 3, 2019 PAGE 24
3. Section 6.1 of the Regulation is also intended to provide a portfolio manager with
a dealer registration exemption, where necessary, for inter-fund trades made in
accordance with section 6.1 of the Regulation, but will not apply to any other activities of
the portfolio manager. The exemption is based on compliance with the Regulation and
the limitation of its application to prospectus-qualified investment funds. The CSA note
that the Registration Reform project may re-examine this exemption.
4. Section 6.1 of the Regulation sets out the minimum conditions for inter-fund
trades to proceed without regulatory exemptive relief. An IRC may consider including in
any approval any terms or conditions in prior exemptive relief orders, waivers or
approvals obtained from the securities regulatory authorities.
5. Section 6.1 of the Regulation does not specify the policies and procedures that a
manager must have to effect inter-fund trades. However, the CSA expect the manager's
policies to include factors or criteria for
- allocating securities purchased for or sold by 2 or more investment funds
managed by the manager; and
- ensuring that the terms of purchase or sale will be no less beneficial to the
investment fund than those generally available to other market participants in arm'slength transactions.
- The CSA expect that the IRC may give its approval in the form of a standing
instruction under section 5.4 of the Regulation, to give the manager greater flexibility to
take advantage of perceived market opportunity.
- Paragraph 6.1(2)(c) of the Regulation requires that the market quotations for the
transactions be transparent. The CSA expect that if the price information is publicly
available from a marketplace, newspaper or through a data vendor, for example, this
will be the price. If the price is not publicly available, the CSA expect the investment
fund to obtain at least one quote from an independent, arm's-length purchaser or seller,
immediately before the purchase or sale.
- The CSA consider the requirement in paragraph 6.1(2)(f) of the Regulation to be
a way to facilitate price discovery and integrity. The CSA believe this is essential to wellfunctioning and efficient capital markets. Subparagraph 6.1(1)(b)(iii) of the Regulation is
intended to capture, for corporate debt securities, the requirement, if applicable, to
report the trade to CanPx, and for illiquid securities, the requirement, if applicable, to
report the trade to the Canadian Unlisted Board (CUB).
- Paragraph 6.1(2)(g) of the Regulation sets out the minimum expectations
regarding the records an investment fund must keep of its inter-fund trades made in
POLICY STATEMENT IN FORCE FROM JANUARY 3, 2019 TO JANUARY 4, 2022
Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 25
reliance on section 6.1 of the Regulation. The records should be detailed, and sufficient
to establish a proper audit trail of the transactions.
6.2. Transactions in securities of related issuers
Commentary to section 6.2 of the Regulation
- Section 6.2 of the Regulation is intended to relieve investment funds in Québec,
and mutual funds elsewhere in Canada, from the prohibitions in the securities legislation
of each securities regulatory authority that preclude investments in securities of related
issuers.
- Section 6.2 of the Regulation sets out the minimum conditions for purchases to
proceed without regulatory exemptive relief. An IRC may consider including in any
approval any terms or conditions in prior exemptive relief orders, waivers or approvals
obtained from the securities regulatory authorities.
The CSA expect that the IRC may give its approval in the form of a standing instruction
as described in section 5.4 of the Regulation to allow the manager greater flexibility in
its decisions.
- Section 6.2 of the Regulation contemplates that the manager will comply with the
applicable reporting requirements under securities legislation for each purchase. The
filing referred to in paragraph 6.2(1)(b) of the Regulation should be filed on the SEDAR
group profile number of the investment fund, as a continuous disclosure document.
- If an IRC gives its approval for the investment fund to purchase securities of an
issuer described in section 6.2 of the Regulation, and then subsequently withdraws its
approval for additional purchases, the CSA will not consider the continued holding of the
securities to be subject to subsection 1.2(b) of the Regulation. However, we will expect
the manager to consider whether continuing to hold those securities is a conflict of
interest matter that subsection 1.2(a) of the Regulation would require the manager to
refer to the IRC.
PART 7
EXEMPTIONS
7.1. Exemptions
No commentary.
7.2. Existing exemptions, waivers or approvals
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Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 26
Commentary to section 7.2 of the Regulation
- The CSA have, in a number of jurisdictions, granted exemptions and waivers
from the conflict of interest and self-dealing provisions in securities legislation to permit
the manager and/or the investment fund to make investments not otherwise permitted
by securities legislation. Some of those exemptions and waivers contained “sunset”
provisions that provided for the expiry of the exemption or waiver upon the coming into
force of legislation or a CSA policy or rule that effectively provides for fund governance.
For greater certainty, the CSA note that the coming into force of section 7.2 of
the Regulation will effectively cause all exemptions and waivers that deal with the
matters regulated by the Regulation - not just those exemptions and waivers that deal
with the matters under subsection 5.2(1) of the Regulation, - to expire one year after its
coming into force whether or not they contained a “sunset” provision.
PART 8
EFFECTIVE DATE
8.1. Meaning of investment fund
Commentary to section 8.1 of the Regulation
- In Québec, the term “investment fund”, wherever it occurs, means
“unincorporated mutual fund” or “mutual fund” until the relevant transitional provisions of
the Act to amend the Securities Act and other legislative provisions (Bill 29) come into
force.
8.2. Transition
Commentary to section 8.2 of the Regulation
- Section 8.2 of the Regulation is intended to address transitional concerns.
The CSA expect that all investment funds will be compliant with the Regulation
following the expiry of the transition period under subsection 8.2(1) of the Regulation on
November 1, 2007. For an investment fund established after the expiry of the transition
period, it is expected that the investment fund will be compliant with the Regulation
before any purchase order for securities of the investment fund is accepted.
- Subsection 8.2(2) of the Regulation allows a manager an extra time period
(i.e. until May 1, 2007) from the date the Regulation is in force (November 15, 2006 in
Québec) to appoint the initial members of the IRC.
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Regulation 81-107 January 3, 2019 PAGE 27
While this transition period exists for the appointment of IRC members, the CSA
strongly encourage a timely appointment of the IRC by the manager so that within the
transitional period (ending on November 1, 2007) there is sufficient time for the IRC to
adopt its charter, to review the manager's policies and procedures, and to review
(subject to manager referral) any existing conflict of interest matters.
The transition period is also intended to give the manager sufficient time to refer
existing and new conflict of interest matters to the IRC for its review and determination.
3. The CSA anticipate a manager or investment fund may wish to rely on the
Regulation before the expiry of the transition period so that it may proceed with IRC
approval for an otherwise prohibited or restricted transaction in securities legislation
described in subsection 5.2(1) of the Regulation. This may not occur unless there is
complete compliance with the Regulation. Subsection 8.2(4) of the Regulation is
intended to assist the CSA in knowing which managers of investment funds are
proceeding in this manner before the expiry of the transition period.
4. For investment funds established before the expiry of the transition period, the
CSA expect the manager to establish policies and procedures on any conflict of interest
matters (if they do not already have them), and to refer to the IRC these policies and
procedures and any decisions related to such matters prior to the end of the transition
period.
5. The CSA do not consider a manager's organization of an investment fund (such
as the initial setting of fees or the initial choice of service providers) to be subject to IRC
review, unless the manager's decisions give rise to a conflict of interest concerning the
manager's obligations to existing investment funds within the manager's fund family.
However, the CSA expect the manager will establish policies and procedures for any
conflict of interest matters arising from the investment fund's organization or otherwise,
and refer to the IRC these policies and procedures and any decisions related to such
matters.
It is anticipated that the manager will wish to engage the IRC early in the
establishment of the investment fund to ensure the IRC is adequately informed of
potential new conflicts of interest.
6. An investment fund, whether established before or after the date the Regulation
comes into force, has a transition period up to November 1, 2007 to comply with the
Regulation. Only if the manager of an investment fund intends to comply with the
Regulation in its entirety before the expiry of the transition period is the notice in
subsection 8.2(4) of the Regulation required.
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Regulation 81-107 January 3, 2019 PAGE 28
7. It is expected that investment funds will incorporate any new disclosure
obligations arising out of the Regulation as part of their annual prospectus renewal or
continuous disclosure filing following the expiry of the transition period.
8. The CSA do not consider the expenses incurred by existing investment funds in
establishing an IRC under the Regulation to be caught by section 5.1 of Regulation 81-
102 respecting Investment Funds (chapter V-1.1, r. 39). We do not view section 5.1 as
intending to capture the costs associated with compliance by an investment fund with
new regulatory requirements.
8.3. Effective date
No commentary.
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APPENDIX A DECISION TREE
Yes
Yes
1.
Yes
No
Yes
No
No
Yes
2.
Yes
Yes
No
No
Yes
Proposed
Action
Conflict of
Interest
Matter?
Manager
proceeds
Manager
refers the
matter to the
IRC
What type
of conflict
is this?
Is matter
prohibited by
securities
legislation?
Is matter not
otherwise
regulated?
Is matter
. Interfund trade
or
. Transaction in
securities of a
related issuer or
. Purchase of
securities of a
related
underwriter?
IRC must review
and provide
recommendation
IRC gives
IRC must approval
approve
transaction
IRC gives positive
recommendation
IRC gives
negative
recommendation
Manager
proceeds
IRC does not
give approval
Manager may
not proceed
Does the
matter require
securityholder
approval?
Does the
matter
require
regulatory
approval or
exemptive
relief?
Does the
matter require
securityholder
approval?
Does the
matter require
regulatory
approval or
exemptive
relief?
Manager to obtain
securityholder
approval before
proceeding
Notice of meeting must inform
securityholders or IRC
recommendation
Manager proceeds
Manager to obtain
regulatory approval or
exemptive relief before
proceeding
Manager to obtain
securityholder approval
before proceeding
notice of meeting must inform
securityholders of IRC
recommendation
Manager may choose
to proceed or not to
proceed
.IRC may require immediate
notice to investors if manager
proceeds
. to be disclosed in IRC report
Manager to obtain
regulatory approval or
exemptive relief before
proceeding
POLICY STATEMENT IN FORCE FROM JANUARY 3, 2019 TO JANUARY 4, 2022
Policy Statement to
Regulation 81-107 January 3, 2019 PAGE 30
Décision 2006-PDG-0198, 2006-11-15
Bulletin de l'Autorité: 2006-11-17, Vol. 3 n° 46
Amendments
Décision 2009-PDG-0127, 2009-09-04
Bulletin de l'Autorité : 2009-09-25, Vol. 6 n° 38
Décision 2018-PDG-0075, 2018-11-14
Bulletin de l'Autorité : 2018-12-20, Vol. 15 n° 50