Individual decision · SEC · 1 Dec 1995
The SEC staff clarifies that aggregating orders for advisory clients does not violate section 17(d) of the Investment Company Act or section 206 of the Advisers Act if procedures prevent systematic disadvantage to any account. Investment companies must appropriately cover options and futures positions by holding sufficient assets or cash in segregated accounts to fulfill obligations. Advisers must allocate aggregated trades fairly, disclose their policies to clients, and complete trade tickets by the close of business on the trade date. Broker-dealers are required to maintain current records of brokerage orders and prepare confirmations on the day of the transaction or the following business day.
UNITED STATES
SECURITIES AND EXCHANGE COMMISSION
WASHINGTON. D.C. 20549
DIVISION OF
INVESTMENT MANAGEMENT
Decemb~~,J.,..l~IM'l~"""""ii",.,;1i"'~'''''''' t'.
Ms. Christine E. Leone :;;..,t 'CA ._¿,..~..""..~=.. ' .,,~..:r':, ", ,,___.- .~ ~ - ~ "'""~
Pretzel & Stouffer
One South Wacker Drive '" ti " \t....4li'('ii.,~..' );ii;..~_, Suite 2500 Chicago, IL 60606-4673 :.iblic ¡ . .,--~- .,1J.O l"Td --I __',"":
Dear Ms. Leone:
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We are in receipt of your letter dated May 25, 1995 asking a number of questions regarding the rules and regulations governing an investment adviser's abilty to aggregate orders for the purchase or sale of securities on behalf of its clients, and the proper allocation of those trades among the clients. You have also asked a number of questions relating to the procedures to be employed in placing orders, and in executing these trades. This response has been prepared jointly by the Division of Investment Management, which is responsible for the regulation of mutual funds and investment advisers, and by the Division of Market Regulation, which is responsible for the regulation of broker-dealers. The Division of Investment Management recently issued a no-action letter to SMC Capital, Inc. (pub. avaiL. Sept. 5, 1995) (the "SMC Letter"), a copy of which is enclosed, in which the staff stated that the mere aggregation of orders for advisory clients, including collective investment vehicles in which the adviser, its principals or employees have an interest, would not violate section 17(d) of the Investment Company Act of 1940 ("Investment Company Act") or section 206 of the Investment Advisers Act of 1940 (" Advisers Act") if the adviser implements procedures designed to prevent any account from being systematically disadvantaged by the aggregation of orders. 1/ While the Division
believes that the procedures desciibed in the SMC Letter should be adequate for this purpose, the letter notes that there may be other allocation methods that advisers can use without violating section 17(d) or section 206. 2/
In response to your specific questions:
funds, as well as their employer's ERISA plans, such as profit-sharing plans?
Whether or not a fund manager may trade futures for a mutual fund depends upon the investment policies of the fund, as disclosed in the fund's prospectus and statement of additional information. In addition, section 18 of the Investment Company Act restricts the extent to which an investment company may issue "senior securities," including debt. The Division of Investment Management has taken the position that obligations evidenced by 1/ We discuss section 17(d), rule 17d-l thereunder, and section 206 in response to question 2. 2/ See the SMC Letter at n. 11.
futures and options contracts may constitute "indebtedness," and thus these transactions may give rise to the issuance of senior securities. The Division has stated, however, that it wil not recommend enforcement action to the Commission under section 1 8 if an investment company appropriately "covers" its options and futures positions by holding or having the right to acquire the assets that the fund is obligated to deliver under the contract or by holding cash or high-grade liquid debt securities in a segregated account on the books of its custodian bank in an amount that, when combined with the amount of intial margin paid, 'JI is at all times sufficient to fulfil its obligations. M We are unable to advise you whether a manager may trade futures for an employee benefit plan subject to the Employee Retirement Income Security Act of 1974, as this question is within the jurisdiction of the Department of Labor, the agency that administers ERISA.
2. If
yes, what laws pertain to segregation of assets, allocation of trades and/or, trading procedures? As discussed in response to question 1, the Division of Investment Management takes' the position that an investment company must appropriately "cover" its options and futures positions, or place cash or high-grade liquid debt securities in a segregated account in an amount that is at aU times sufficient to fulfill its obligations. The Commission has stated that only liquid assets, such as cash, U.S. government securities or other appropriate highgrade debt obligations, should be placed in such segregated accounts. The value of the assets in the account should be marked-to-market daily, and additional assets should be placed in the segregated account whenever the total value of the account fals below the amount required. 5/ Neither the Investment Company Act nor the Advisers Act directly addresses the- issue of allocating client orders. Section 17(d) of the Investment Company Act may be implicated, however, by an adviser's allocation of trades among a registered investment company and other clients that may be "affùiated persons" of the registered investment company (or affiliated persons of such persons), including clients in which persons 'J./ To enter into a futures contract or write a commodity option, investors deposit a
specifed amount of assets or cash as initial margin. Currently, investment companies must maintain their initial margin deposits in special accounts with a thid party custodian bank, rather than directly with the futures commission merchant ("PCM"). The Commission has proposed a rule that would permit investment companies to use PCMs and commodity clearing organiations as custodians of their assets and effect their commodity trades in the same manner as other market participants under conditions designed to ensure the safekeeping of investment company assets. See Investment Company Act Release No. 20313 (May 24, 1994). M Dreyfus Strategic Investing (pub. avail. Mar. 30, 1987) (copy enclosed). 21 See Investment Company Act Release No. 10666 (Apr. 18, 1979), 17 SEC Docket
319.
associated with the adviser have an interest. fl1 Section 17 (d) provides that the Commission may adopt rules restricting participation by a registered investment company in joint transactions with affilated persons for the purpose of preventing or liiting participation by
the company on a basis different from or less advantageous than that of any other participant. Rule 1 7d- 1, in relevant part, provides that no affiliated person of a registered investment company, and no affIliated person of an affùiated person, may paricipate in any joint enterprise, arrangement, or profit-sharing plan, as defined in the rule, with the investment company without first obtaing an exemptive order from the Commission. As we stated in the SMC Letter, however, We do not believe that the mere aggregation of orders on behalf of a registered investment company and other advisory clients would violate
section 17 (d), provided that the investment company participates on terms no less
advantageous than those of any other client. If a portfolio manager allocates trades in such a way as to disadvantage a registered investment company, however, a joint enterprise or)
arrangement raising the concerns section 17(d) was designed to address may result. 11 . The anti-fraud provisions of the federal securities laws also would apply to transactions that are allocated in order to benefit certain accounts over others. In particular,
section 17(j) of the Investment Company Act and rule 1 7j- 1
(a) thereunder, in relevant part, generally prohibit any principal underwriter for a registered investment company or any affiliated person of the company, its investment adviser or its principal underwriter from defrauding the company in connection with the purchase or sale by such person of a security held or to be acquired by the registered investment company. Rule 1 7j- 1 also requires each registered investment company and each investment adviser and principal underwriter of such company to adopt a code of ethics governing personal trading by fund officers and directors and other persons who have access to information regarding fund purchases and sales of portfolio securities. Under a fund's code of ethics, personal securities trades by such persons must be reported no less frequently than quarterly. Many codes of ethics also set forth other restrictions on personal trading, and may prohibit such trading under some circumstances. Of course, to the extent that trades for the account of an affilated person of a fund are aggregated with trades for the fund itself in reliance on the SMC Letter, such trades stil must comply with all reporting and other requirements set forth in applicable codes of ethics.
Section 206 of the Advisers Act imposes a fiduciary duty on an investment adviser to
act in the utmost good faith with respect to its clients, and to provide full and fair disclosure of all material facts. ß/ An adviser that aggregates client orders must do so in a manner fl1 Section 2(a)(3) of the Investment Company Act defines an affiliated person of another
person to include, among other things, any person directly or indirectly ownig, controllng, or holding with power to vote, five percent or more of the outstanding voting securities of the other person, any person five percent or more of whose outstanding voting securities are directly or indirectly owned, controlled, or held with power to vote by the other person, or any investment adviser of an investment company. Under some Circumstances, funds that share a common investment adviser may be deemed to be under common control. In re Steadman Security Coi:., 1974 75 Fed. Sec. L. Rep. (CCH) '80,038 (Dec. 20, 1974). 11 See, e.g., In re Kemper Financial Services. Inc., Investment Advisers Act Release No. 1387, Fed. Sec. L. Rep. (CCH) , 85,237 (Oct. 20, 1993). B/ SEC v. Capital Gains Research Bureau. Inc., 375 U.S. 180, 184 (1963).
consistent with its duty to seek best execution of the orders, and must ensure that all clients are treated fairly in the aggregation and allocation. Additionally, an adviser must disclose to its clients its policies with respect to the aggregation of orders.
3. 'Wen must an order ticket be completed by the manager's trader, at the time
the order is placed or at the time the fill is reported?
Trade tickets are generally completed and faxed or otherwise delivered to the client's custodian bank no later than the close of business on the trade date. 2/ In the case of an
investment company, this generay permits the custodian and the pricing agent to record the trades by the next trading day, which is when the fund's trading activity must be reflected in the calculation of its net asset value. Neither the Investment Company Act nor the Advisers Act specifies precisely when an order ticket must be completed in relation to a trade. However, recordkeeping rules under each Act require that records be kept on a current basis. The Commission has instituted, and simultaneously settled, an administrative proceeding agaist the chief investment officer and head of the fixed-income desk of a registered investment adviser for violations of rules 204-2(a)(3) and 204-2(c)(1) and (2) under the Advisers Act for failig to write trade tickets until two to nine business days after the trades were executed. 101 The failure to write trade tickets and allocate the transactions in a timely manner caused the investment adviser's records to be inaccurate and not current.
4. 'Wen must the manager decide which accounts the trade wil be allocated to?
Must this be done and recorded prior to the trade being placed? If yes, may the manager change the initially allocated trades? If yes, what parameters, procedures and/or constraints must he use in changing the allocation? While neither the Investment Company Act nor the Advisers Act specifcally addresses the issue of allocation procedures, the procedures outlined in the SMC Letter stated that the alocation of aggregated trades would be made, and memorialied in writing, prior to placing the order. Under these procedures, the allocation could be changed forgood cause after the order had been placed, 111 and any deviation from the original allocation would be explained in writing, and approved in writing by the adviser's 21 See Financial Reporting Codification § 404.03.a. (interpreting Accounting Series Release 118). 101 In the Matter of Michael L. Smirlock, Advisers Act Release No. 1393 (Nov. 29, 1993). Rules 204-2(a)(3) and 204-2(c)(I) and (2) require advisers to make and keep accurate and current records showing, among other things: (1) the securities purchased and sold for each client and the dates of those purchases and sales; (2) for each security held by a client, information from which the adviser can determine the client who owns that security and the current amount owned by that client; and (3) the terms and conditions of each purchase and sale order and the accounts for, which they were entered. 111 For instance, it may be appropriate to deviate from the original allocation when, subsequent to entering the trade but before the final allocation, the adviser determines that the security in question would be unsuitable or inappropriate for one of the clients designated in the original allocation.
compliance officer no later than one hour after the openig of the markets on the trading day following the day the order was executed. As noted above, there may be procedures other than those specified in the SMC Letter that advisers can use without violating section 17(d) or section 206.
how must the trades be allocated? 'Wat rules assure that trades are allocated properly, and fairly? In general, an adviser has an obligation to treat al of its clients fairly and equitably. Please see the SMC Letter and our response to question 4.
6. Must managers that manage two or more mutual funds or accounts allocate
similar trades to assure that each fund receives a certain average cost? If yes, how is that allocation done? Is there a special method or methods that must be utilzed? Must the allocation be compared to the intended initial allocation? Although we are uncertain what you mean by "similar trades," we note that an adviser does not violate its fiduciary duty to its clients merely by failng to aggregate orders for client accounts. The adviser would, as a general matter, have to disclose to its clients that it wil not aggregate and the consequences of the failure to aggregate, such as potentially higher commissions. As to your questions regarding the procedures or methods to be utilied for allocating aggregated client orders, please see our response to question 4
and the SMC Letter.
7. 'Wen must the manager's traders time stamp the trade tickets? Should they
be stamped when the order is phoned into the broker-dealer? Should they be stamped when the broker-dealer calls back with a fill? Rule 31a-l(b)(5) under the Investment Company Act requires registered investment companies to maintain a record of each brokerage order given by or on behalf of the investment company (whether executed or not). This record must include, among other things, the time of entry or cancellation of the order and the time of receipt of the report of execution. While "time-stamping" is not specifically required, therefore, as a practical matter, most advisers of investment companies time-stamp to fulfil their obligations under rule 31a-l(b)(5). 121
121 Rule 204-2(a)(3) under the Advisers Act requires that records of securities transactions reflect the date of entry of an order (but not the time).
by such customer.
131 See Statement Regarding the Maintenance of Current Books and Records by Brokers and Dealers, Exchange Act Release No. 10756 (Apr. 26, 1974) (the "SEC Release") (copy attachvJ). 141 See SEC Release.
interpreted the "make and keep current" provisions of rule 17a-3(a)(8) to require brokerdealers to prepare and mail confinations on the day of the transactions or the following business day.
As additionally indicated in the response to question 8 above, rule lOb-lO(a)(1) under the Exchange Act requires a broker-dealer, at or before completion of a transaction with or for the account of a customer, to give or send the customer written notifcation of the date and time of the transaction (or the fact that the time of the transaction wil be furnished upon written request to such customer) and the identity, price, and number of shares or units (or principal amount) of a security purchased or sold by such customer. yes, how does the manager (who we wil assume for the moment is day trading) sell his position, if he is unaware of when he was filled? 10. If
The manager should inquire of each broker-dealer used to determine its business practice with respect to notification of orders being fIled. If necessar, the manager could try to negotiate that notice be given within a certain period of time after an order has been executed. For a general discussion of the books and records requirements of the Exchange Act, please see our responses to questions 8 and 9 above.
order over the phone and/or when he fills the order and/or when he repons the fill to the
not the manager's trader's ticket)? If
manager's trader?
As indicated in the response to question 8 above, rule 17a-3(a)(6) under the
Exchange Act requires a broker-dealer to make and keep current a memorandum of each brokerage order, specifying the time of entry of the order and, to the extCl1t feasible, the time of execution. The rule specifies that the term "time of entry" is deemed to mean the time when the broker-dealer transmits the order or instruction for execution or, if it is not so transmitted, the time when it is received. In addition, rule 17a-3(a)(7) requires a broker-dealer to make and keep current a
memorandum of each purchase and sale for the account of such broker-dealer showing, to
the extent feasible, the time of execution. Where such purchase or sale is with a customer
other than a broker-dealer, rule 17a-3(a)(7) further specifes that a broker-dealer must make' and keep current a memorandum of each order received, showing the time of receipt.
The Commission has interpreted the "make and keep current" provisions of rules 17a-3(a)(6) and 17a-3(a)(7) to require broker-dealers to prepare memoranda of brokerage and pricipal transactions at the time of the transactions. 151
12. 'Wen does the broker-dealer NEED to mow the identity of the account that
did the transaction? The broker-dealer needs to place the trade into someone's account at
the end of the day. If the manager's trader doesn't tell him whose account until the
following day, where does the trade end up?
Rule 17a-3(a)(7) under the Exchange Act requires a broker-dealer to make and keep current a memorandum of each purchase and sale for the account of such broker-dealer. Where the purchase or sale is with a customer other than the broker-dealer, rule 17a-3(a) (7) further specifies that a broker-dealer must make and keep current a memorandum showing the account in which the order was entered. As noted above, the Commission has interpreted the "make and keep current" provision of rule 17a-3(a)(7) to require broker-dealers to prepare a memoranda of brokerage and principal transactions at the time of the transactions.
As a practical matter, an investment adviser must instruct the custodians of the accounts participating in the transaction how funds or securities should be allocated. Please see our response to question 3 regarding when trade tickets are generally completed and delivered to an investment company's custodian.
13. If several trades are placed without identifing the accounts into which the
trade wil be allocated ahead of time, what prevents the manager from allocating the trades however he feels is appropriate after the trade is filled? Example - a manager buys 500 S&P 500 futures, but doesn't identify the accounts prior to the trade. He manages two diferent mutual funds. The trade is filled, and he allocated immediately upon receiving the fill - how do we mow the allocation was legitimate? If Fund A received 30% of the trades and Fund B 70% of the trades? If the 500 were filled at diferent prices, which fund gets which prices? Please see the SMC Letter and our response to question 4.
14. If it is a very busy day and these same trades are not allocated until after the
close (at which point the manager already mows the gain or loss in each trade), what prevents him from allocating the losing trades to one account and the winning trades to another? . Please see our responses to questions 2 and 4. In addition, we emphasize that if a portfolio manager allocates trades in such a way as to disadvantage a registered investment company, a joint enterprise or arrangement raising the concerns section 17(d) was designed to address may result. 161 Similarly, if a portfolio manager allocates trades in such a way as to disadvantage any client, the adviser may violate section 206 of the Advisers Act. 121 See SEC Release.
161 See Kemper, supra, note 7.
I hope that the above information is helpfuL. If you have any additional questions, or need further assistance, please feel free to call me at (202) 942-0660. Sincerely, ct4~J/vt¿ ~L~ Kame McMilan
Senior Counsel
Office of Chief Counsel
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Alan J Sctiumaclv;'
MICl1.:el G, Brule.:
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Charles F. Reddec
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Michael A. CI()rk€-
Joseph M. Dooley II
Stephen C Veltmar.
Roger A. Rubin
Wilham B. BoVier
Paula Meyer BeSIE:r
Daniel 8. Miils
Audrey A. Berish
Jeffery W. Davis
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B(ìrbara Condit Cannir~(;
Marlene A. Kunuã
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J;:iies A LaBargf: Wilham P. McGowen It!
Lvnn M. REwJ
Anne.' S. JOhnson
Donald J. O'Meara. Jr. Molly M. O'Reilly
M. Anne Gavagan
Patrick F. Healy
David B. Gelman
Joyce M. Greene
Steven J. Martin
Peter G. Skiko
Daniel J. Moriarty
Daniel G. Wills Heather L. Huthwaite
Grace Winkler Cranley
Christine M. Koman
John M. McGregor
Desmnd P. Curran
Jodi M, Smller
Scott L. Howie Jennifer Djenstag Levine
Gina L. Macari
Adrian Mendoza
Cathleen M. Milos
Michele E. Sibley
Charlene M. Sheridan of Counsel Ralph E. Stoulfer, Jr Joseph B, Led':r1eitner LAW OFFICES
PRETZEL & STOUFFER Chartered r' .. r'" *R" ,.,. : .
ONE SOUTH WACKER DRIVE. SUITE 2500. CHICAGO. ILLINOIS 60606-4673. 312/346-1973 JUN G 1995 FAX NUMBER 312/346.8242 ..1:'¡Ji, l.l l,-,1Õ\ÖlLi May 25, 1995 AUTHOR'S" =::::T DIAL PLEAE REFER TO OUR FII E NUf. tBER 312/578-7663 0006.602074-113 Securities and Exchange Commission
Division of Market Regulation
Office of Chief Counsel
JUN n 1995
Mail stop 7-10
Washington, D.C. 20549
..~;o¡'~ C;' MARi\fT f\t::",.. --.".1 \ (;._. it ,'J,~' To Whom It May Concern:
We are investigating a bond claim for an insurance company. As part of the investigation, we are analyzing an "allocation of trades" scheme. We are in search of specific rules and regulations pertaining to the following types of issues/questions.
for publicly traded mutual funds, as well as their
employer's ERISA plans, such as prOfit-sharing
plans?
2. If yes, what laws pertain to segregation of assets,
allocation of trades and/or, trading procedures?
3 . When must an order ticket be completed by the
manager's trader, at the time the order is placed
or at the time the fill is reported?
trade will be allocated to? Must this be èone and
recorded prior to the trade being placed: If yes,
may the manager change the initially allocated
trades? If yes, what parameters, procedures and/ or
constraints must he use in changing the allocation?
versus prior to placing the trade, how must the
trades be allocated? What rules assure that trades
are allocated properly, and fairly?
accounts, allocate similar trades to assure that
each fund receives a certain average cost? If yes,
how is that allocation done? is there a special
method or methods that must be utilized? Must the
PRETZEL & STOUFFER Chaitere
May 25, 1995
allocation be compared to the intended initial allocation?
7. When must the managers traders time stamp the trade
tickets? Should they be stamped when the order is
phoned into the broker? Should they be stamped
when the broker calls back with a fill?
day because it is so large that it can't be filled
in one transaction? When is the trade ticket time
stamped? When does the broker call the managers
trader to confirm the fill? Does the broker call
to confirm portions of the fill, or does he wait
until the order is completely filled?
fill by a specific time? Example: if the trade is
placed at 10:00 A.M., and happens to be filled at
11: 00 A. M., how long may the broker wait to report
the fill? May he wait an hour? 2 hours, may he
call after the market closes?
for thè moment if day trading) sell his position,
if he is unaware of when he was filled?
brokers ticket, not the managers traders ticket)?
If yes, when? Does he stamp it when he receives
the order over the phone and/or when he fills the
order and/or when he reports the fill to the
managers trader?
12 . When does the broker NEED to know the identi ty of
the account that did the transaction? The broker
needs to place the trade into someone' s account at
the end of the day. If the manager's trader
doesn't tell him whose account until the following
day, where does the trade end up?
the accounts into which the trade will be allocated
ahead of time, what prevents the manager from
allocating the trades however he feels is
appropriate after the trade is filled? Example - a
manager buys 500 S&P 500 futures, doesn't identify
PRETZEL & STOUFFER Charered
May 25, 1995
the accounts prior to the trade. He manages two
different mutual funds. The trade is filled, he
allocated immediately upon receiving the fill - how
do we know the allocation was legitimate? If Fund
A received 30% of the trades and Fund B 70% of the
trades? If the 500 were filled at different
prices, which fund gets which prices?
not allocated until after the close (at which point
the manager already knows the gain or loss in each
trade), what prevents him from allocating the
losing trades to one account and the winning trades
to another?
have to document the TIME he is notif ied of the
allocation of the trades?
Any' information you can provide with regard to this
matter would be appreciated. Please contact me if you have
any questions. Thank you in advance for your cooperation.
Very truly yours,
PRETZEL & STOUFFER, CHATERED
By: , x.
0: \SURETY\RSW1 \KEMPER\SEC. 581
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The documents this one cites, and the documents that cite it.
“Section 17a-3 of the Securities Exchange Act of 1934 ("Exchange Act") sets forth requirements for books and records”
“whether a manager may trade futures for an employee benefit plan subject to the Employee Retirement Income Security Act of 1974”
“or section 206 of the Investment Advisers Act of 1940 ("Advisers Act")”
“would not violate section 17(d) of the Investment Company Act of 1940 ("Investment Company Act")”
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