[Federal Register Volume 64, Number 43 (Friday, March 5, 1999)]
[Proposed Rules]
[Pages 10579-10596]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-5444]


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SECURITIES AND EXCHANGE COMMISSION

17 CFR Parts 210, 228 and 240

[Release Nos. 33-7649; 34-41118 International Series No. 1187; File No. 
S7-7-99]
RIN: 3235-AH52


Financial Statements and Periodic Reports for Related Issuers and 
Guarantors

AGENCY: Securities and Exchange Commission.

ACTION: Proposed rule.

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SUMMARY: We are proposing financial reporting rules for issuers and 
guarantors of guaranteed securities. We also are proposing an exemption 
from periodic reporting for subsidiary issuers and guarantors of these 
securities. These proposals would codify, in large part, the positions 
the staff has developed through Staff Accounting Bulletin No. 53, later 
interpretations, and the registration statement review process. We 
intend for these rules to eliminate any uncertainty about which 
financial statements and periodic reports subsidiary issuers and 
guarantors must file.

DATES: We must receive your comments on or before May 4, 1999.

ADDRESSES: Please submit comment letters in triplicate to Jonathan G. 
Katz, Secretary, U.S. Securities and Exchange Commission, Mail Stop 6-
9, 450 Fifth Street, N.W., Washington, D.C. 20549. You also may submit 
comment letters electronically to the following e-mail address: rule-
[email protected]. All comment letters should refer to File No. S7-XX-
99. If e-mail is used, include this file number on the subject line. 
All comments received will be available for public inspection and 
copying in the Commission's Public Reference Room at the same address. 
Electronically submitted comments will be posted on

[[Page 10580]]

the Commission's Internet web site (http://www.sec.gov).

FOR FURTHER INFORMATION CONTACT: Regarding proposed Rule 12h-5, Michael 
Hyatte, Julie Hoffman, or Kristina Schillinger at (202) 942-2900; 
regarding the Regulation S-X and Regulation S-B proposals, Craig 
Olinger at (202) 942-2960, both in the Division of Corporation Finance.

SUPPLEMENTARY INFORMATION: We are proposing amendments to Rule 3-10 \1\ 
of Regulation S-X \2\ and Item 310 of Regulation SB.\3\ We are also 
proposing new Rule 3-16 \4\ of Regulation S-X and new Rule 12h-5 \5\ 
under the Securities Exchange Act of 1934.\6\
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    \1\ 17 CFR 210.3-10.
    \2\ 17 CFR 210.1-01 through 12-29.
    \3\ 17 CFR 228.310.
    \4\ 17 CFR 210.3-16.
    \5\ 17 CFR 240.12h-5.
    \6\ 15 U.S.C. 78a et seq.
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I. Executive Summary

    Over the past two decades, it has become increasingly common for a 
parent company to raise capital through:
     Offerings of its own securities that are guaranteed by one 
or more of its subsidiaries; and
     Offerings of securities by a subsidiary that are 
guaranteed by the parent, and sometimes, one or more of the parent's 
other subsidiaries.
    Absent an exemption, the Securities Act of 1933 \7\ requires the 
offering of both the guaranteed security and the guarantee to be 
registered. Securities Act registration requires the disclosure of both 
financial and non-financial information about the issuer of the 
guaranteed security as well as any guarantors. Moreover, due to the 
registration of the offer and sale of the guaranteed securities and the 
guarantees, both the issuer and the guarantors become subject to 
Section 15(d) \8\ of the Exchange Act of 1934. Section 15(d) requires 
all Securities Act registrants to file Exchange Act periodic reports 
for at least the fiscal year during which the Securities Act 
registration statement became effective.
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    \7\ 15 U.S.C. 77a et seq. 
    \8\ 15 U.S.C. 78o(d).
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    There are circumstances, however, where full Securities Act and 
Exchange Act disclosure by both the issuer and the guarantors may not 
be useful to an investment decision and, therefore, may not be 
necessary. For example, if a subsidiary with no independent assets or 
operations issues debt securities guaranteed by its parent, full 
disclosure of the subsidiary's financial information would be of little 
value. Instead, investors would look to the financial status of the 
parent which guaranteed the debt to evaluate the likelihood of payment.
    As this example demonstrates, subsidiary issuers and guarantors 
raise a number of practical issues under the Securities Act and the 
Exchange Act. Included among these issues are:
     What financial information must issuers of guaranteed 
securities provide to potential investors;
     What financial information must guarantors provide to 
potential investors; and
     What financial information must those issuers and 
guarantors continue to provide to the secondary market.
    In 1983, the staff addressed these issues in Staff Accounting 
Bulletin No. 53.\9\ In the 15 years since we published SAB 53, 
guaranteed securities have become significantly more complex. While the 
basic analysis of SAB 53 remains sound, the staff has had to expand on 
this analysis in response to registration statements and interpretive 
requests that involve new and complex offering structures. In addition, 
the staff has responded to an increasing number of requests for 
exemptions from Exchange Act reporting. In 1997, nearly half of all 
interpretive, no-action, or exemptive requests acted on by the Division 
of Corporation Finance involved SAB 53.
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    \9\ Securities Act Release No. SAB-53. 48 FR 28230 (June 13, 
1983).
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    The staff's interpretive structure has been effective in addressing 
these issues. This approach was designed to properly balance the 
issuer's obligation to disclose material information fully with the 
investor's need for this information. We believe that the staff's 
analysis will adapt well to future developments.
    Therefore, we propose to codify, in large part, the staff's current 
analysis regarding the obligations of issuers and guarantors. We 
believe these rule proposals are needed because they would:
     Eliminate uncertainty regarding financial statement 
requirements;
     Eliminate uncertainty regarding on-going reporting;
     Eliminate the burden on these subsidiaries to seek 
interpretive guidance regarding these requirements; \10\ and
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    \10\ If we adopt today's proposals, issuers of guaranteed 
securities and guarantors could still request an interpretive 
position from the Division of Corporation Finance if proposed Rule 
3-10 does not address their situation.
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     Simplify the staff's interpretive structure by applying 
one standard condensed consolidating financial information instead of 
the current approach that requires more or less financial disclosure 
based solely on the existence of non-guarantor subsidiaries.
    We propose to revise Rule 3-10 of Regulation S-X to require 
condensed consolidating financial information in all situations 
involving a subsidiary issuer or subsidiary guarantor that is not a 
finance subsidiary.\11\ This condensed financial information would be 
included in Securities Act registration statements on a combined basis, 
instead of being presented in separate financial statements for each 
subsidiary. We also propose Exchange Act Rule 12h-5, which would exempt 
from Exchange Act reporting requirements those subsidiary issuers and 
guarantors that may omit financial statements under revised Rule 3-10.
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    \11\ In connection with the proposed revision to Rule 3-10, we 
also propose:
    New Note 3 to Item 310 of Regulation S-B requiring small 
business issuers to present financial information in accordance with 
proposed Rule 3-10 for the fiscal periods they are required to 
present; and
    To move the financial statement requirement of affiliates whose 
securities collateralize a registered issue from current Rule 3-10 
and put it in proposed new Rule 3-16 of Regulation S-X.
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II. The Structure of This Release

    We have separated this release into five main sections.
    First, we describe how the Securities Act registration requirements 
apply to offerings of guaranteed securities.
    Second, we describe the current financial statement requirements 
for issuers of guaranteed securities and guarantors. This description 
begins with the basic requirements of Regulation S-X and addresses the 
purpose and effect of SAB 53. It also discusses the positions the staff 
has taken in interpreting basic issues regarding SAB 53, such as the 
meaning of ``wholly owned subsidiary'' and ``full and unconditional 
guarantee.'' \12\ Finally, we present the developments in the staff's 
analysis that deal with complex securities and complex corporate 
structures.
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    \12\ This release discusses the meanings of a number of terms, 
including ``finance subsidiary,'' ``debt security,'' ``wholly-owned 
subsidiary,'' and ``full and unconditional guarantee,'' in the 
context of SAB 53 and proposed Rule 3-10. Given the unique purpose 
of SAB 53 and proposed Rule 3-10, the discussion in this release 
applies only to today's proposals.
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    Third, we describe the Exchange Act reporting obligations of 
subsidiary issuers of guaranteed securities and guarantors. This 
description addresses the statutory requirement of Section 15(d), the 
SAB 53 discussion regarding Exchange Act reporting, and the staff's 
current analysis.
    Fourth, we describe our rule proposals regarding the financial

[[Page 10581]]

information and Exchange Act reporting requirements for subsidiary 
issuers of guaranteed securities and guarantors.
    Fifth, we include appendices at the end of this release to 
demonstrate how the proposed rules would apply to a number of different 
fact patterns. We hope that these appendices will increase your 
understanding of the proposals and assist you in commenting on them.

III. Securities Act Registration Requirements for Offerings of 
Guarantees

    Guarantees of securities are securities themselves for purposes of 
the Securities Act. As a result, offers and sales of both the 
guaranteed security and the guarantee must either be registered under 
the Securities Act or exempt from registration.

IV. Current Financial Statement Requirements for Subsidiary 
Guarantors and Subsidiary Issuers of Guaranteed Securities

A. Regulation S-X Requirements

1. Guarantors
    Rule 3-10 of Regulation S-X identifies which financial statements 
guarantors must include in Securities Act registration statements, 
Exchange Act registration statements, and Exchange Act reports.\13\ 
Rule 3-10 currently requires all guarantors to include the same 
financial statements they would have to include if they were the 
issuers of the guaranteed securities. Rule 3-10 applies equally to 
parent guarantors and subsidiary guarantors.
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    \13\ Rule 3-10 also prescribes financial statement requirements 
for affiliates of reporting issuers when the securities of such 
affiliates are the collateral for any class of the issuer's 
registered securities. These requirements are outside the scope of 
today's proposal. See Section VI.G. for a more complete discussion 
of those requirements.
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2. Subsidiary Issuers of Guaranteed Securities
    Regulation S-X requires subsidiary issuers of guaranteed securities 
to file the same financial statements as any other issuer of 
securities.

B. Modified Financial Statement Requirements in Staff Accounting 
Bulletin No. 53

1. Purpose and Application of SAB 53
    In 1983, in response to questions arising from the increased number 
of guaranteed securities offerings, the Commission published Staff 
Accounting Bulletin No. 53. The objective of SAB 53 was to elicit full 
and fair disclosure regarding issuers and guarantors in a format that 
was:
     Meaningful to investors; and
     Not unduly burdensome to registrants.
    SAB 53 did not amend Rule 3-10 of Regulation S-X. Instead, it 
described the approach the staff would take in its review of 
registration statements for two types of offerings of guaranteed debt 
securities:
     Securities issued by a subsidiary that are guaranteed by 
the parent of that subsidiary; and
     Securities that are issued by a company and guaranteed by 
a subsidiary of that company.
    SAB 53 and the staff interpretations that followed recognize that 
there is no need for complete financial statements from both the issuer 
of the guaranteed security and the guarantor when:
     The issuer is a wholly-owned subsidiary of the parent 
guarantor; and
     The guarantee is full and unconditional.
    In this type of issuer/guarantor relationship, there is a unity of 
financial risk between the two entities. As a result, the need for 
separate financial disclosure is removed or reduced. We discuss these 
two conditions below.
    a. Meaning of ``Wholly-Owned'' in SAB 53. A subsidiary is ``wholly-
owned'' within the meaning of SAB 53 if all of its voting shares and 
any outstanding securities convertible into its voting shares are 
owned, directly or indirectly, by its parent.\14\ This meaning differs 
from the general definition of ``wholly-owned subsidiary'' in Rule 1-
02(aa) of Regulation S-X.\15\ Regulation S-X regards a subsidiary as 
wholly-owned if substantially all of its voting shares are held by its 
parent.\16\
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    \14\ A subsidiary may have outstanding securities convertible 
into its voting shares if its parent owns all of the convertible 
securities. Citizens Utilities Company (May 20, 1996).
    \15\ 17 CFR 210.1-02(aa).
    \16\ All securities of a subsidiary that confer the right to 
elect directors or their functional equivalent annually, whether or 
not those securities are equity or debt, must be held by the parent 
to satisfy the ``wholly-owned'' test. This test is unaffected by the 
existence of other securities that grant the right to vote in the 
event of special circumstances, such as a default. See 17 CFR 210.1-
02(z) for the definition of ``voting shares.''
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    Satisfaction of the stricter requirement under SAB 53 ensures that 
there is no competing interest to the parent's ownership. Any outside 
voting interest in the subsidiary breaks the financial unity between 
the subsidiary and its parent that is needed to justify the special 
relief granted in SAB 53.
    b. Meaning of ``Full and Unconditional Guarantee'' in SAB 53.
    (i) Guarantor's Payment Obligations Must be the Same as the 
Issuer's. A guarantee is ``full and unconditional'' when the payment 
obligations of the issuer and guarantor are essentially identical. When 
an issuer fails to make a payment called for by the security, the 
guarantor is obligated to make the scheduled payment immediately and, 
if it doesn't, the holder of the security may take legal action 
directly against the guarantor for payment. A guarantee is not full if 
the amount of the guarantor's liability is less than the issuer's or, 
should the issuer default, the guarantor's payment schedule differs 
from the issuer's payment schedule. There can be no conditions, beyond 
the issuer's failure to pay, to the guarantor's payment obligation. For 
example, the holder cannot be required to then exhaust its remedies 
against the issuer before seeking payment from the guarantor.
    (ii) Guarantee Still May be Full and Unconditional Even if it Has a 
Fraudulent Conveyance ``Savings Clause''. A guarantee can be full and 
unconditional even if it includes a ``savings'' clause related to 
bankruptcy and fraudulent conveyance laws. These savings clauses 
prevent the guarantor from making an otherwise required payment if the 
money needed to make that payment is first recoverable by other 
creditors under bankruptcy or fraudulent conveyance laws. However, if 
any clause places a specific limit on the amount of the guarantor's 
regular payment obligation to avoid application of bankruptcy or 
fraudulent conveyance laws, it is the staff's position that the 
guarantee is not full and unconditional.
    For example, the following savings clauses would not defeat the 
full and unconditional nature of the guarantee:
     The guarantor's obligation under the guarantee is limited 
to ``the maximum amount that can be guaranteed without constituting a 
fraudulent conveyance or fraudulent transfer under applicable 
insolvency laws.''
     The guarantee is enforceable ``to the fullest extent 
permitted by law.''
    The following savings clauses would defeat the full and 
unconditional nature of the guarantee:
     The guarantee is enforceable ``up to $XX.''
     The guarantor guarantees the indebtedness ``up to $XX.''
     The guarantee is ``limited to $XX, in order to prevent the 
guarantor from violating applicable fraudulent conveyance or transfer 
laws.''
     The guarantee is enforceable ``up to XX% of the 
guarantor's current assets.''
     The guarantee is ``limited to XX% of the guarantor's 
current assets in order to prevent the guarantor from violating 
applicable fraudulent conveyance or transfer laws.''

[[Page 10582]]

     The guarantee is enforceable ``so long as it would not 
result in the subsidiary having less than $XX in net assets (or other 
financial measure).''
    (iii) Guarantee Still May Be Full and Unconditional Even if it has 
Different Subordination Terms Than the Guaranteed Security. A guarantee 
can be full and unconditional despite different subordination terms 
between the guaranteed security and the guarantee.\17\ Although 
different subordination terms mean security holders have different 
rights in the priority of payment, both the issuer and the guarantor 
remain fully liable to holders for all amounts due under the guaranteed 
security.
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    \17\ Williams Scotsman, Inc. (March 19, 1998).
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2. Modified Financial Statements Described in SAB 53
    As we discussed above, SAB 53 indicated the staff's acceptance of 
modified financial information for subsidiary issuers when:
     The subsidiary issuer is a wholly-owned subsidiary of the 
parent guarantor; and
     The guarantee is full and unconditional.
    If either of these conditions is not met, full financial statements 
for subsidiary issuers of guaranteed securities must be included in the 
registration statement.
    If both of these conditions are met, SAB 53 states that the amount 
of required financial information regarding the subsidiary issuer will 
depend on whether the subsidiary has independent operations.
    a. Subsidiary Issuer ``Essentially has no Independent 
Operations''In this situation, SAB 53 states that the subsidiary is not 
required to provide any separate financial statements because ``the 
investor's investment decision is based on the credit worthiness of the 
guarantor.'' This category was intended for finance subsidiaries. These 
typically are subsidiaries that function as special purpose divisions 
of the parent to raise capital or conduct financing. They typically 
have no operations or assets other than those associated with their 
financing activities.\18\
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    \18\ This definition in consistent with the definition in Rule 
3a-5 of the Investment Company Act of 1940, which provides that the 
primary purpose of a finance subsidiary is to finance the business 
operations of the parent or a company controlled by the parent.
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    b. Subsidiary Has ``More than Minimal Independent Operations''. SAB 
53 requires summarized financial information when the subsidiary issuer 
has ``more than minimal independent operations.'' This summarized 
financial information must meet the requirements of Rule 1-02(bb)(1) of 
Regulation S-X.\19\
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    \19\ 17 CFR 210.1-02(bb)(1).
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C. Evolution of SAB 53 Analysis

    As companies have developed new structures for subsidiary issued 
and guaranteed securities, the staff has expanded the analysis of SAB 
53 through its processing of registration statements and exemptive 
requests.\20\
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    \20\ SAB 53 applies to both financial statement requirements in 
Securities Act registration statements and the Exchange Act 
reporting obligations of subsidiary guarantors and subsidiary 
issuers of guaranteed securities. The staff applies the same 
analysis to each of these situations. With regard to the Exchange 
Act reporting obligations of these subsidiaries, SAB 53 instructs 
issuers to file exemptive applications under Section 12(h) of the 
Exchange Act. Early in the development of SAB 53 issues, the staff 
began accepting these exemptive requests as ``no-action'' letters 
instead of exemptive applications. this process continues today. 
Throughout this release, when we discuss ``exemptive requests'' we 
refer to both exemptive applications and ``no-action'' requests.
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1. Expansion of SAB 53 to Securities Other Than Debt
    a. Preferred Equity Securities. SAB 53 only speaks of guaranteed 
debt securities. However, the same principles used under SAB 53 apply 
to preferred equity securities when the preferred securities have 
payment terms substantially the same as debt--that is, the payment 
terms mandate redemption and/or dividend payments. Like debt 
securities, these preferred equity securities usually lack voting 
rights.\21\
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    \21\ Preferred equity securities normally carry very limited 
voting rights, such as the right of holders to vote on matters 
affecting their rights as shareholders or business combinations. The 
right to elect directors is normally conferred only when the issuer 
has failed to declare or pay a dividend required by the security.
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    In order for a guarantor of preferred securities to be eligible for 
SAB 53 relief, it must fully and unconditionally guarantee all of the 
issuer's payment obligations under the certificate of designations or 
other instrument that governs the preferred securities. The guarantor 
must guarantee the payment, when due, of:
     All accumulated and unpaid dividends that have been 
declared on the preferred stock out of funds legally available for the 
payment of dividends;
     The redemption price, on redemption of the preferred 
stock, including all accumulated and unpaid dividends; and
     Upon liquidation of the issuer of the preferred stock, the 
aggregate stated liquidation preference and all accumulated and unpaid 
dividends, whether or not declared, without regard to whether the 
issuer has sufficient assets to make full payment as required on 
liquidation.
    Some preferred stock guarantees limit the guarantor's redemption 
and liquidation payments to the amount of funds or assets that are 
legally available to the issuer of the preferred stock. These 
guarantees would not be full and unconditional. For example, guarantees 
that contain the following provisions would not be full and 
unconditional:
     The guarantor guarantees, on redemption of the preferred 
stock, the redemption price, including all accumulated and unpaid 
dividends, from funds legally available therefor under the (governing 
instrument).
     Upon liquidation of the issuer of the preferred stock, 
guarantor agrees to pay the lesser of:
     The aggregate stated liquidation preference and all 
accumulated and unpaid dividends, whether or not declared; and
     The amount of assets of the issuer of the preferred stock 
legally available for distribution to holders of the preferred stock in 
liquidation.
    b. Trust Preferred Securities/Income Preferred Securities. In 
recent years the markets have developed complex instruments called 
trust preferred securities.\22\ Trust preferred securities generally 
are issued by a special purpose business trust created by its 
parent.\23\ The trust exists only to issue the preferred securities and 
hold debt securities issued by its parent. Payment obligations of the 
trust are ensured not by a single agreement called a guarantee, but 
through several agreements and the terms of the debt securities it 
holds. The agreements normally include a guarantee and an expense 
undertaking from the parent, the trust indenture for the debt 
securities the trust holds, and the trust declaration of the trust 
itself.
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    \22\ Other names for these securities include ``monthly income 
preferred securities'' or ``quarterly income preferred securities.'' 
These securities generally are sold under proprietary names such as 
MIPs or TOPRs.
    \23\ These securities typically are issued by a business trust 
but also may be issued by a limited partnership or a limited 
liability corporation.
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    The staff has agreed with the view that the bundle of rights 
provided by these several agreements and the debt securities held by 
the trust, usually called ``back-up undertakings,'' is the equivalent 
of a full and unconditional guarantee of the trust's payment 
obligations. Because the ``back-up undertakings'' place the investor in 
the same position as if the parent company had fully and 
unconditionally guaranteed the trust's payment obligations on the 
preferred securities, the staff has agreed that the SAB 53 principles 
may be applied.

[[Page 10583]]

2. Parent Issuer and Subsidiary Guarantor
    Under the reasoning of SAB 53, any subsidiary guarantor would be 
required to file full financial statements.\24\ As parent-issuer/
subsidiary-guarantor structures became more widely used, the staff 
revised this position. The staff's response to a 1987 exemptive request 
states that the staff would treat subsidiary guarantors the same as it 
treats subsidiary issuers.\25\ Based on this position, a subsidiary 
guarantor's financial reporting obligations could be modified in the 
same manner as a subsidiary that issues debt securities that are 
guaranteed by its parent.
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    \24\ SAB 53 states: In the relatively infrequent situations 
where a registration statement covers the issuance by a parent of a 
security that is guaranteed by its subsidiary, the staff has 
concluded that, as a general rule, financial statements for both 
issuers would be material to the investment decision.
    \25\ Anheuser-Busch Companies, Inc. (April 2, 1987).
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3. Use of Condensed Consolidating Financial Information
    As stated above, the SAB 53 analysis does not require separate 
financial statements if the subsidiary issuer or subsidiary guarantor 
has no independent operations or assets, but it requires summarized 
financial information when the subsidiary has more than minimal 
independent operations or assets.\26\ Over time, the usefulness of 
summarized financial information decreased as the corporate structures 
used in offerings of guaranteed securities evolved and became more 
complex.
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    \26\ Summarized financial information, generally, consists of 
summarized information as to the assets, liabilities and results of 
operations of the entity. See 17 CFR 210.1-02(bb) for the specific 
requirements of summarized financial information.
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    For example, more complex guarantee structures raised the question 
of how to deal with multiple guarantors. Some interpretive requests 
involved more than 100 subsidiary guarantors. Other structures 
presented to the staff involved a subsidiary issuer, a parent 
guarantor, multiple subsidiary guarantors, and multiple subsidiaries 
that were not guarantors.
    The limited SAB 53 structure did not adequately accommodate these 
new complexities. In some cases, strict application of the SAB 53 
standard would have required more than 100 different sets of summarized 
financial statements. Not only would that disclosure have been 
burdensome on the registrant to provide, but it is unlikely to have 
been useful to investors.
    The summarized financial information requirement in Regulation S-X 
was originally intended to inform investors about a registrant's equity 
investments in unconsolidated affiliates. This type of financial 
information is appropriate when the investment decision is based solely 
on the financial condition of the parent company. The limited data will 
show the general, indirect effect of the subsidiaries on that parent 
company's financial condition. However, in adopting SAB 53, the staff 
did not contemplate the widespread use of summarized data as the 
primary financial information for decisions about the credit-worthiness 
of a subsidiary's guarantee of registered debt. The staff also did not 
contemplate more complex parent-subsidiary structures where investors 
must assess the subsidiary's financial condition more completely and 
independently of its parent company and of that parent's other 
subsidiaries. For example, we believe investors focus on cash flow 
information in credit decisions, but summarized financial information 
includes no cash flow information.
    Through interpretive requests and the review and comment process, 
the staff developed a bifurcated approach to address the presentation 
of useful financial information for guaranteed securities and the 
guarantees. The first part of this approach relies on the inclusion of 
``condensed consolidating financial information'' in lieu of summarized 
financial information in situations where the presentation of financial 
statements of the entities would be useful to an investor.\27\ 
Condensed consolidating financial information provides a more complete, 
meaningful basis for investors to assess the debt-paying ability of 
subsidiary issuers and guarantors.
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    \27\ The staff has applied this standard to those situations 
that do not involve a single subsidiary issuer or guarantor or that 
do not involve a finance subsidiary issuer with the parent as the 
sole guarantor involving finance subsidiaries. The staff first 
accepted condensed consolidating financial information in connection 
with its case-by-case review of registration statements for 
offerings of securities with this structure. Consistent with the 
earlier development of SAB 53 interpretation, the staff applied the 
same analysis to exemptive requests for Exchange Act reporting. 
Chicago & North Western Acquisition Corp. (February 6, 1990); EPIC 
Properties, Inc. (March 13, 1992).
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    Condensed consolidating financial information requires the columnar 
presentation of each category of parent and subsidiary as issuer, 
guarantor, or non-guarantor.\28\ These presentations more clearly 
distinguish the assets, liabilities, revenues, expenses, and cash flows 
of the entities that are legally obligated under the indenture from 
those that are not. Summarized financial information may obscure these 
distinctions, particularly if subsidiary guarantors themselves have 
consolidated operating subsidiaries that are not guarantors.
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    \28\ The staff permits subsidiary guarantors to combine 
financial information in one column if their guarantees are joint 
and several.
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    Condensed consolidating information provides the same level of 
detail about the financial position, results of operations, and cash 
flows of subsidiary issuers and guarantors that investors are 
accustomed to obtaining in interim financial statements of a 
registrant. It facilitates analysis of trends affecting subsidiary 
issuers and guarantors and the understanding of relationships among the 
various components of a consolidated organization.
    However, SAB 53 itself requires summarized financial information, 
not condensed consolidating information. As we described above, the 
staff developed the requirement for condensed consolidating financial 
information through interpretive requests because summarized financial 
information was not adequate financial disclosure for the new financing 
structures not contemplated when the SAB was created. The second part 
of the staff's approach to the presentation of financial statements 
relies on the use of summarized financial information only in those 
increasingly less frequent situations in which the SAB specifically 
contemplated that financing structure.

V. Current Exchange Act Periodic Reporting Requirements

A. Exchange Act Reporting Requirements

    The registration of an offering of a guarantee under the Securities 
Act obligates the guarantor to file periodic reports with the 
Commission. Exchange Act Section 15(d) requires separate annual and 
interim reports from both the issuer and the guarantor of securities 
offered under an effective Securities Act registration statement.

B. Modification of Exchange Act Reporting Requirements for Subsidiary 
Guarantors and Subsidiary Issuers of Guaranteed Securities

    SAB 53 only briefly addresses the Exchange Act reporting 
obligations of subsidiary issuers of parent-guaranteed securities. In a 
footnote, SAB 53 states:

    Where the parent guarantor of an issuer subsidiary in either the 
first [finance subsidiary issuer-no separate financial statements] 
or second [operating subsidiary issuer-summarized financial 
statements] category is a reporting company under the Exchange Act, 
upon application to the Commission such a subsidiary would be 
conditionally exempted pursuant to Section 12(h) of the Exchange Act 
from reporting obligations under such Act.


[[Page 10584]]


    Since the issuance of SAB 53, the staff of the Division of 
Corporation Finance has responded to an increasing number of requests 
for exemptions from Exchange Act reporting. The staff's analysis of 
Exchange Act exemptive requests parallels its analysis under the 
Securities Act of the financial statement requirements for subsidiary 
guarantors and subsidiary issuers of guaranteed securities. If a 
subsidiary issuer or guarantor need not include separate financial 
statements under the SAB 53 analysis, an exemption from separate 
reporting under the Exchange Act should also be available. Instead of 
separate reporting for the subsidiary issuer or guarantor, the parent 
will present in its annual and quarterly reports the same modified 
information regarding the subsidiary as it presented in its Securities 
Act registration statement.

VI. The Rule Proposals

    We believe that the requirements for subsidiary issuer and 
guarantor financial information should be set forth in Regulation S-X. 
We also believe that the exemption from Exchange Act reporting should 
be set forth in a rule that parallels the financial statement 
requirements. We propose to codify, in large part, the staff's current 
approach in these areas. We believe the proposals will provide 
investors with meaningful and comparable financial information about 
subsidiary issuers and guarantors.
    We believe our proposals will provide significant benefits to 
subsidiary issuers and guarantors of securities. First, they would 
remove uncertainty about financial statement requirements. Second, they 
should greatly reduce the number of exemptive requests registrants must 
make to the Division of Corporation Finance. This would lessen the 
administrative burden to registrants and the Division alike.

A. Application of Proposed Rule 3-10

    As we discuss in Section IV.C.1. above, the staff has applied SAB 
53 to debt and to preferred securities that have payment terms that are 
substantially the same as debt. We propose the same scope for Rule 3-
10. These preferred securities would include trust preferred securities 
and income preferred securities, as we describe in Section IV.C.1.b. 
above.\29\
---------------------------------------------------------------------------

    \29\ See Example #23 of Appendix A for the information the 
proposed rule would require the parent to include in its financial 
statements with respect to these securities.
---------------------------------------------------------------------------

    We request your comment on the scope of the rule. Should it apply 
to preferred securities with payment terms substantially the same as 
debt or only to debt securities? Are there any other securities, 
similar to debt, to which the proposed rule should apply? Are there any 
categories of debt securities to which the rule should not apply? 
Should it not apply to trust preferred securities and income preferred 
securities such as MIPs and TOPRs? If so, is the level of disclosure 
set forth in Exhibit A appropriate? Should we treat the parent's back-
up undertakings as a full and unconditional guarantee? Should the 
parent's financial statements include any more or less disclosure about 
the preferred securities?

B. Modified Financial Statement Reporting Requirements

    First, we propose to restate the general rule that all issuers or 
guarantors of registered securities must include full financial 
statements. We then propose to allow modified financial information in 
registration statements and periodic reports for five issuer/guarantor 
situations:
     A finance subsidiary issues securities that its parent 
guarantees;
     An operating subsidiary issues securities that its parent 
guarantees;
     A subsidiary issues securities that are guaranteed by its 
parent and one or more other subsidiaries of its parent;
     A parent issues securities that one of its subsidiaries 
guarantees; and
     A parent issues securities that are guaranteed by more 
than one of its subsidiaries.
    In these five situations, we propose the following two-part 
analysis to determine whether modified financial information may be 
provided for subsidiary issuers and guarantors. If the answer to both 
questions is yes, modified financial information would be allowed:
     Is the subsidiary issuer or guarantor wholly-owned by its 
reporting parent?
     Are all of the guarantees full and unconditional?
    We propose to include in Rule 3-10 the same definitions of 
``wholly-owned'' and ``full and unconditional guarantee'' that the 
staff applies under SAB 53. The interpretations of wholly-owned in 
Section IV.B.1.a. and Appendix C, and of full and unconditional in 
Section IV.B.1.b. would be applied to these definitions.
    We seek comment on whether the five categories listed above are 
appropriate. Are there other categories of parent/subsidiary 
relationships that we should separately address? We also seek comment 
on the proposed definition of ``wholly-owned.'' Are there circumstances 
in which the parent does not own 100% of the voting shares of its 
subsidiary that should qualify for special treatment under proposed 
Rule 3-10? For example, what if a foreign country requires directors to 
own a certain percentage of a company's voting shares? \30\
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    \30\ See, e.g., Crown Cork & Seal Company, Inc. (March 10, 
1997). The staff agreed to a no-action request from a subsidiary 
organized in the Republic of France even though it had more than one 
voting shareholder. French law required the subsidiary to have a 
total of seven shareholders and also required each director to own 
at least one share. The staff noted that the subsidiary was wholly-
owned, except to the minimum extent necessary to satisfy the laws of 
its home country.
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    What if a subsidiary has outstanding securities convertible into 
its voting shares not owned, directly or indirectly, by its parent? 
What if those securities have been issued but are not yet exercisable? 
What if a subsidiary has granted options to its employees that are 
exercisable for its voting shares? What if the options have been 
granted but are not yet exercisable?
    We also request comment on the definition of ``wholly-owned'' as it 
applies to subsidiaries that are trusts, limited partnerships, or 
limited liability companies. Is there a more appropriate standard than 
the direct or indirect ownership of 100% of the voting shares of the 
subsidiary? ``Voting shares,'' as defined in Rule 1-02(z) of Regulation 
S-X,\31\ include ``the sum of all rights, other than as affected by 
events of default, to vote for election of directors and/or the sum of 
all interests in an unincorporated person.'' Is this the proper 
definition of voting shares and, therefore, ``wholly-owned,'' for these 
types of subsidiaries?
---------------------------------------------------------------------------

    \31\ 17 CFR 228.1-02(z).
---------------------------------------------------------------------------

    We also request comment on whether the proposed definition of 
``full and unconditional'' is appropriate. Should a guarantee be 
considered full and unconditional when it contains a general fraudulent 
conveyance savings clause that is not limited to a specific dollar or 
percentage amount? Are there some circumstances in which a guarantee 
should be considered full and unconditional even when it contains a 
limitation of a specific dollar amount or percentage? Are there other 
limitations on preferred stock guarantees that we have not mentioned 
that would cause a guarantee not to be full and unconditional? Should 
we treat the ``back-up undertakings'' that guarantee trust preferred 
securities and income preferred securities as a full and unconditional 
guarantee? Should different subordination terms between a guaranteed 
security and the guarantee call into question the full and 
unconditional character of the guarantee?

[[Page 10585]]

    If either the guarantee is not full and unconditional or the 
subsidiary issuer/guarantor is not wholly owned by its reporting 
parent, then modified financial information would not be allowed. In 
subsections 1 through 6, below, we assume that each of these conditions 
has been met.
1. Finance Subsidiary Issuers
    We propose to amend Rule 3-10 to codify SAB 53's treatment of 
finance subsidiary issuers of securities that are guaranteed by the 
parent company. Specifically, subsidiary issuers would not be required 
to include any financial statements if:
     The subsidiary has no independent assets or operations 
other than those associated with the financing activities;
     The parent of the issuer guarantees the securities;
     No other subsidiaries of the parent guarantee the 
securities;
     The parent company's financial statements are filed for 
the periods specified by Rules 3-01 and 3-02 of Regulation S-X; and
     The parent company's financial statements include a 
footnote stating that the issuer is a wholly-owned finance subsidiary 
of the parent with no independent assets or operations and the parent 
has fully and unconditionally guaranteed the securities.
2. Operating Subsidiary Issuers
    We propose to amend Rule 3-10 to address specifically the structure 
where the parent of a subsidiary with independent assets or operations 
guarantees the securities issued by that subsidiary. Under SAB 53 and 
current staff interpretations, this issuer may disclose only summarized 
financial information instead of a full financial presentation. 
Consistent with our view that condensed financial information is more 
informative, we propose that these issuers need not include separate 
financial statements if:
     No subsidiaries of the parent guarantee the securities;
     The parent company's financial statements are filed for 
the periods specified by Rules 3-01 and 3-02 of Regulation S-X; and
     The parent company's financial statement footnotes include 
condensed consolidating financial information with a separate column 
for:
     The parent company,
     The subsidiary issuer,
     Any other subsidiaries of the parent on a combined basis,
     Consolidating adjustments, and
     The total consolidated amounts.
3. Subsidiary Issuer of Securities Guaranteed by Its Parent and One or 
More Other Subsidiaries of That Parent
    We propose to codify current staff interpretations for the 
structure where a subsidiary issues securities and both its parent and 
one or more other subsidiaries of the parent are guarantors. We propose 
that these subsidiary issuers and guarantors need not include separate 
financial statements if:
     The guarantees are joint and several;
     The parent company's financial statements are filed for 
the periods specified by Rules 3-01 and 3-02 of Regulation S-X; and
     The parent company's financial statement footnotes include 
condensed consolidating financial information with a separate column 
for:
     The parent company,
     The subsidiary issuer,
     The guarantor subsidiaries on a combined basis,
     The non-guarantor subsidiaries on a combined basis,
     Consolidating adjustments, and
     The total consolidated amounts.
    This proposal would apply the same requirement for condensed 
consolidating financial information to finance subsidiary issuers and 
operating subsidiary issuers that are part of this structure.
4. Subsidiary Guarantor of Securities Issued by Its Parent
    We propose to codify the current staff interpretation for the 
structure where a parent company issues securities and one of its 
subsidiaries guarantees those securities. We propose that the 
subsidiary guarantor need not include separate financial statements if:
     No other subsidiaries of that parent guarantee the 
securities;
     The parent company's financial statements are filed for 
the periods specified by Rules 3-01 and 3-02 of Regulation S-X; and
     The parent company's financial statement footnotes include 
condensed consolidating financial information with a separate column 
for:
     The parent company,
     The subsidiary guarantor,
     Other subsidiaries of the parent on a combined basis,
     Consolidating adjustments, and
     The total consolidated amounts.
    This proposal would apply the same requirement for condensed 
consolidating financial information to finance subsidiary guarantors 
and operating subsidiary guarantors that are part of this structure.
5. Multiple Subsidiary Guarantors of Securities Issued by Their Parent
    We propose to codify the staff's position that when a parent 
company issues securities and more than one of its subsidiaries 
guarantees the securities, the subsidiary guarantors need not include 
separate financial statements if:
     The guarantees are joint and several;
     The parent company's financial statements are filed for 
the periods specified by Rules 3-01 and 3-02 of Regulation S-X; and
     The parent company's financial statement footnotes include 
condensed consolidating financial information with a separate column 
for:
     The parent company,
     The subsidiary guarantors on a combined basis,
     The non-guarantor subsidiaries on a combined basis,
     Consolidating adjustments, and
     The total consolidated amounts.

C. Recently Acquired Subsidiary Issuers or Guarantors

    A special issue in the financial statement disclosure for issuers 
and guarantors is the treatment of recently acquired subsidiaries. 
Because these subsidiaries generally are not included in the 
consolidated results of the parent company for all periods, condensed 
consolidating financial information does not effectively present all 
material information about these subsidiaries to investors.\32\
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    \32\ Currently, Rule 3-10 and SAB 53 provide no relief for a 
subsidiary issuer or guarantor for periods prior to its acquisition. 
Literal application of Rule 3-10 would require three years of 
audited financial statements, regardless of the significance of the 
acquired subsidiary. The staff has administratively permitted 
registrants to apply the significance tests in Rule 3-10(b) by 
analogy, but that practice has provided limited relief and created a 
number of implementation issues.
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    We propose to require pre-acquisition financial statements for 
significant, recently acquired subsidiary issuers and guarantors until 
the condensed consolidating financial information would adequately 
reflect their cash flows and results of operations. Specifically, we 
propose to require separate audited financial statements for 
significant, recently acquired subsidiary issuers and guarantors for 
the subsidiary's most recent fiscal year. Unaudited financial 
statements also must be filed for any interim period specified by Rules 
3-01 and 3-02 of Regulation S-X.\33\
---------------------------------------------------------------------------

    \33\ 17 CFR 210.3-01 and 17 CFR 210.3-02.
---------------------------------------------------------------------------

    We propose to require pre-acquisition financial statements in 
registration

[[Page 10586]]

statements only. We would not require them in Exchange Act periodic 
reports.
    This proposed treatment for recently acquired subsidiaries would 
apply to any subsidiary issuer or guarantor:
     That has not been included in the audited consolidated 
results of the parent company for at least a nine-month period; and
     Whose net book value or purchase price, whichever is 
greater, equals 20% or more of the shareholders' equity of the parent 
company on a consolidated basis.\34\
---------------------------------------------------------------------------

    \34\ This significance test would be computed by using amounts 
for the subsidiary and parent as of the most recent fiscal year end 
before the acquisition.
---------------------------------------------------------------------------

    We propose to measure the significance of recently acquired issuers 
and guarantors by comparison to shareholders' equity of the parent 
company rather than to the amount of the debt being registered. The 
proposed measure is more consistent with the staff's overall approach 
to analyzing issuer/guarantor structures, which focuses on the 
relationship of subsidiary financial information to the parent 
company's consolidated financial statements. The proposed measure 
should be a more relevant indicator of the recently acquired 
subsidiary's relative importance to the parent company. The proposed 
measure should not cause financial statements to be filed for small 
guarantors acquired by well-capitalized companies that issue relatively 
small amounts of debt. Conversely, the proposed measure should result 
in greater financial disclosure where the parent company is thinly 
capitalized.
    Is 20% of consolidated shareholders' equity the correct measure for 
requiring the financial statements of a recently acquired subsidiary 
that issues guaranteed securities or guarantees securities? Would a 
larger percentage, such as 30%, 40%, 50%, be more appropriate? Would a 
smaller percentage, such as 15%, 10%, or 5%, be more appropriate? Is 
shareholders' equity the correct test for applying the requirement? 
Should other factors be considered instead of, or in addition to, 
shareholders' equity? If so, what other factors should be considered? 
Is nine months the proper length of time for this analysis? Should it 
be shorter, such as three or six months? Should it be longer, such as a 
full fiscal year or two fiscal years?

D. Instructions for Condensed Consolidating Financial Information Under 
Proposed Rule 3-10

    To help ensure meaningful, consistent presentation of the condensed 
consolidating financial information, we propose thirteen instructions 
on how to prepare them. We propose to include these instructions in new 
paragraph (i) of Rule 3-10. The proposed instructions are:
    1. Present the financial information in sufficient detail to allow 
investors to determine the assets, results of operations, and cash 
flows of each of the consolidating groups.
    2. Follow the general guidance in Rule 10-01 of Regulation S-X for 
the form and content for condensed financial statements.
    3. The financial information should be audited for the same periods 
that the parent company financial statements are audited.
    4. The parent company column should present investments in all 
subsidiaries under the equity method.
    5. All subsidiary issuer or guarantor columns should present 
investments in non-guarantor subsidiaries under the equity method.
    6. Provide separate columns for each guarantor by legal 
jurisdiction if differences in domestic or foreign laws affect the 
enforceability of the guarantees.
    7. Include the following disclosures:
     Each subsidiary issuer and/or guarantor is wholly owned by 
the parent company;
     All guarantees are full and unconditional; and
     Where there is more than one guarantor, all guarantees are 
joint and several.
    8. Disclose any significant restrictions on the ability of the 
parent company or any guarantor to obtain funds from its subsidiaries 
by dividend or loan.
    9. Provide the disclosures prescribed by Rule 4-08(e)(3) with 
respect to the guarantors.
    10. Disclose additional financial and narrative information about 
each guarantor if the information would be material for investors to 
evaluate the sufficiency of the guarantee.
    11. The financial information shall include sufficient disclosures 
to make the information presented not misleading.
    12. Disclosure that would substantially duplicate disclosure 
elsewhere in the parent's financial statements is not required.
    13. Where the parent company's consolidated financial statements 
are prepared on a comprehensive basis other than U.S. Generally 
Accepted Accounting Principles, reconcile the information in each 
column to U.S. Generally Accepted Accounting Principles to the same 
extent specified by Item 17 of Form 20-F.
    We request comment as to whether these instructions provide 
sufficient guidance to prepare the financial statements. For example, 
are the instructions too general or specific? Would further guidance be 
helpful? Also, do the instructions elicit the appropriate level of 
disclosure?

E. Condensed Consolidating Financial Information

    Our proposals today adopt the first part of the staff's current 
approach to the presentation of useful financial information: condensed 
consolidating financial information. We propose to require condensed 
consolidating financial information in all situations not involving a 
finance subsidiary, as described above. We request comment on this 
proposal. Is condensed consolidating financial information adequate for 
current financing structures of guaranteed securities and guarantees? 
Will condensed consolidating financial information adapt to the 
developing financing structures? Are there situations in which 
summarized financial information is adequate? Is there another type of 
financial presentation that would be better suited for guaranteed 
securities and guarantees than either condensed consolidating or 
summarized financial information?
    We propose to amend Item 310 of Regulation S-B to require small 
business issuers to include the same financial information requirements 
as in proposed Rule 3-10. We request comment on this proposal. Is it 
appropriate to propose the same requirements, regardless of the size of 
the issuer? Should there be different standards for small business 
issuers? Is the corporate structure of small business issuers less 
complex and, if so, do investors not need condensed consolidating 
information?

F. Exchange Act Reporting

    Currently, subsidiary issuers or guarantors that are not required 
to include separate financial statements may seek an exemption from the 
Exchange Act reporting requirements. As noted above, the volume of 
these exemptive requests is significant. The staff's consideration of 
these exemptive requests requires the same analysis we use in 
determining the level of financial information required.
    We propose new Rule 12h-5 to eliminate the need for these exemptive 
requests and to remove uncertainty regarding the availability of an 
exemption from Exchange Act reporting. As proposed, Rule 12h-5 would 
exempt from Exchange Act reporting:

[[Page 10587]]

     Any subsidiary issuer or subsidiary guarantor permitted to 
omit financial statements by Rule 3-10; and
     Any recently acquired subsidiary issuer or subsidiary 
guarantor that would be permitted to omit financial statements by Rule 
3-10, but for the requirement to provide pre-acquisition financial 
statements under paragraph (g) of that rule.
    As required by Rule 3-10, the parent company periodic reports would 
include condensed consolidating financial information about the 
subsidiary issuers and/or guarantors.\35\ The parent company periodic 
reports must contain this information:
---------------------------------------------------------------------------

    \35\ In the case of finance subsidiaries, the parent company 
financial statements would include the narrative information 
required by proposed Rule 3-10(b)(4).
---------------------------------------------------------------------------

     For as long as the issuer and any guarantors would be 
subject to reporting under Section 15(d) as a result of the securities 
offering; and
     If the guaranteed securities are registered under Section 
12, for as long as the issuer and any guarantors would be subject to 
reporting obligations under Section 13(a) as a result of the 
registration of the guaranteed securities under Section 12.
    These exemptions are the same as the staff currently provides in 
its responses to exemptive requests. The staff grants these exemptions 
because investors should be provided one source for all of the 
necessary information regarding investment in those securities--the 
parent company's periodic reports--and condensed information regarding 
the subsidiaries within those reports is sufficient for a complete 
understanding of the investment.
    Under proposed Rule 12h-5, these subsidiary issuers and subsidiary 
guarantors would be exempted automatically from Exchange Act reporting 
requirements. As a result, there would be no need for them to request 
exemptive relief from the Commission's staff.
    We request comment on proposed Rule 12h-5. Should there be 
additional requirements for the exemption from Exchange Act reporting? 
For example, would it be appropriate to require the subsidiary to file 
a Form 15 to inform us that it is not required to file Exchange Act 
reports due to the Rule 12h-5 exemption? Would it be appropriate for 
the subsidiary to file a Form 15 filing as a condition to the 
exemption's availability? Would such a filing be useful information for 
the public? Would such a filing be an undue burden on the subsidiary? 
What should be required of subsidiaries that no longer qualify for the 
exemption from Exchange Act reporting under proposed Rule 12h-5 because 
they no longer satisfy the requirements of Rule 3-10 (for example, if 
the guarantee is no longer full and unconditional or the subsidiary is 
no longer wholly-owned)? For example, should they be required to file a 
report on Form 8-K to notify investors that they will resume their 
reports under the Exchange Act? Should some other form of notification 
be required?

G. Financial Statements of Affiliates Whose Securities Collateralize 
Registered Securities--Proposed Rule 3-16 of Regulation S-X

    The financial statement requirements for affiliates whose 
securities collateralize registered securities currently are combined 
with the requirements for guarantors in Rule 3-10 of Regulation S-X. We 
do not propose to amend the financial statement requirements for these 
affiliates. Because our proposed amendments to Rule 3-10 would change 
significantly the structure of that rule, we propose to move the 
requirements for these affiliates into a rule that applies only to 
them. This will avoid confusion and make the requirements easier to 
understand. This proposed rule would be new Rule 3-16 of Regulation S-
X.\36\
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    \36\ Under current Rule 3-10, the staff frequently is presented 
with registration statements in which the registrants did not 
recognize that the financial statement requirements for guarantors 
may differ from the requirements for affiliates whose securities 
collateralize the registered securities. This misunderstanding 
causes significant issues in structuring securities and considering 
on-going disclosure responsibilities.
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VII. Request for Comment

A. Request Regarding Specific Proposals

    The Commission requests comments on all aspects of the proposed 
amendments.
    In addition, we request comment on the following questions:
     If we adopt today's proposals, should there be a phase-in 
period for parent companies that currently include only summarized 
financial information? If so, why would such a phase-in be needed? How 
long should that phase-in period be? Should it begin with the beginning 
of the first fiscal year after adoption of the proposals?
     A significant benefit that we seek in today's proposals is 
the certainty issuers receive by having the disclosure and reporting 
standards in Commission rules. Is there any additional means by which 
we could provide this certainty? Are there any means by which 
subsidiaries could be certain that they have met the standards in 
proposed Rule 3-10 and, therefore, may rely upon the exemption in 
proposed Rule 12h-5?
     Today's proposals do not address the situation where a 
parent company and one of its wholly-owned subsidiaries are co-obligors 
on a debt or preferred security. In responses to the infrequent 
exemptive requests on this issue, the staff has treated this as if it 
were a subsidiary issuer/parent guarantor situation. Because this 
situation may present unique issues, we would continue to have these 
issuers contact the staff and request exemptive relief. Should we 
include the co-obligor situation in Rule 3-10? Is the information 
required by proposed Rule 3-10 sufficient in a co-obligor situation?
     Should reporting relief be available when a guaranteed 
security is in default? Should additional disclosures be required in 
these circumstances?
     Should there be an exception from condensed consolidating 
information for subsidiary guarantors where:
    (1) The parent company issuer has no independent assets or 
operations,
    (2) Substantially all assets and operations are in guarantor 
subsidiaries, and
    (3) The non-guarantor subsidiaries are inconsequential?

Should parent company only financial statements be permitted in these 
circumstances instead of condensed consolidating information? Should 
the parent company be the only Exchange Act reporting company in these 
circumstances?
     We request comment as to how the proposed rule should 
apply to Foreign Private Issuers. For example, in reports on Form 6-K 
that include interim period financial statements about the parent 
company, should we require Foreign Private Issuers to include condensed 
consolidating information about subsidiaries of the type that we would 
require the parent to include in its annual report on Form 20-F? What 
if the parent were required to file a Form 6-K due to financial 
reporting requirements in its home country but the subsidiary did not 
have a corresponding reporting obligation? Should the parent's reports 
on Form 6-K still include condensed consolidating financial information 
about the subsidiary in that event?
     If we adopt today's proposals, will there be a need for 
SAB 53? If so, for what purpose would SAB 53 be used? If not, should 
SAB 53 be rescinded?

[[Page 10588]]

B. General Request Regarding Debt Offerings

    Current rules and staff practices related to debt offerings focus 
on the existence of registered guarantees. An issuer of debt securities 
that are guaranteed by subsidiaries generally must provide additional 
financial information about those subsidiaries. However, an issuer of 
unguaranteed debt is generally not required to provide separate 
financial information about its subsidiaries, even where substantially 
all of the assets and operations of the consolidated group are held by 
the subsidiaries. Current rules require narrative disclosure of the 
nature and extent of material restrictions on the ability of the 
subsidiaries to distribute funds to the parent company, but do not 
require separate financial information about the subsidiaries or the 
parent on an unconsolidated basis unless restricted net assets of the 
subsidiaries exceed a specified level.\37\
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    \37\ See Rule 4-08 of Regulation S-X (17 CFR 210.4-08) and Rule 
12-04 of Regulation S-X [17 CFR 210.12-04].
---------------------------------------------------------------------------

    Some believe that the current rules and practices place a 
disproportionate burden on issuers that attempt to provide additional 
protection to debt holders through guarantees, in comparison to issuers 
of unguaranteed debt. Others believe that narrative disclosures 
regarding subsidiaries' ability to distribute funds to the issuer are 
not sufficient to allow investors to interpret the issuer's 
consolidated financial statements. Additional financial disclosure such 
as condensed consolidating information or parent-only financial 
statements would, they argue, enhance investors' ability to evaluate 
the issuer's debt-paying capacity.
    We are requesting comment on whether additional financial 
disclosures should be required for offerings of debt that are not 
guaranteed. Are the current requirements adequate? Should condensed 
consolidating information, or parent-only information as contemplated 
by Rule 12-04 of Regulation S-X, be required for all debt issuers that 
have subsidiaries with assets and operations, even if there are no 
subsidiary guarantors? Should other types of disclosure be required in 
these circumstances?
    We invite any interested persons to submit comments. Please submit 
comment letters in triplicate to Jonathan G. Katz, Secretary, U.S. 
Securities and Exchange Commission, Mail Stop 6-9, 450 Fifth Street, 
N.W., Washington, D.C. 20549. You also may submit comment letters 
electronically to the following e-mail address: [email protected]. 
All comment letters should refer to File No. S7-XX-99. If e-mail is 
used, include this file number on the subject line. The Commission will 
consider these comments in complying with its responsibilities under 
Sections 2(b) and 19(a) of the Securities Act and Sections 3(f) and 
12(h) of the Exchange Act.

VIII. Costs and Benefits of the Proposed Rule Changes and Their 
Effects on Efficiency, Competition, and Capital Formation

    We are proposing financial reporting rules for issuers and 
guarantors of guaranteed securities. We are also proposing an exemption 
from periodic reporting for subsidiary issuers and guarantors of these 
securities. Our rule proposals would, for the most part, codify the 
positions the staff has developed through Staff Accounting Bulletin No. 
53, later interpretations, and the registration statement review 
process. The rule proposals deviate from current practice only in the 
following two situations:
     A subsidiary with more than minimal operations issues 
securities, its parent guarantees the securities, and no subsidiary 
guarantees the securities; and
     A parent issues securities, a subsidiary with more than 
minimal operations guarantees the securities, and no other subsidiary 
guarantees the securities.
    Those registrants currently are permitted to provide summarized 
financial information instead of full financial statements. Under our 
proposals, those registrants would be required to provide condensed 
consolidating financial information instead of summarized financial 
information.
    Because the proposed rules are essentially codifying staff 
position, we do not believe the proposed rules would impose substantial 
regulatory costs on registrants. To illustrate this point, we note the 
additional burdens these proposals would have on registrants who were 
granted no-action relief in calendar year 1997. The Division provided 
641 written responses to requests for no-action letters in 1997. 
Shareholder proposal requests pursuant to Exchange Act Rule 14a-8 
accounted for 343 of these responses. Of the 298 non-shareholder 
proposal no-action responses, 140 were requests concerning SAB 53. Of 
the 140 SAB 53 no-action responses the Division issued, 29 were 
permitted to provide summarized financial statements. Under our 
proposals, those 29 registrants would be required to provide condensed 
consolidating financial information. We have estimated the average cost 
of providing condensed consolidating information instead of summarized 
financial information for each of those registrants to be approximately 
$1000.\38\ Therefore, we estimate that the aggregate additional annual 
cost to all registrants will be approximately $29,000 (29 registrants 
x  $1000 per registrant). We request your comments on the 
reasonableness of our estimates.
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    \38\ Depending on the number of subsidiaries, the complexity of 
the financing structure, and other factors, the time required to 
provide condensed consolidating financial information instead of 
summarized financial information could vary significantly. Based on 
consultation with an outside consultant, we estimate that, on 
average, it would take an additional 16 hours to provide condensed 
consolidating financial information in lieu of summarized financial 
information. Assuming that the corporate staff preparing this 
information are compensated at the rate of $63 per hour, we estimate 
the cost of providing condensed consolidating information to be 
approximately $1008 per registrant ($63 per hour  x  16 hours).
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    The costs of the proposed rules are counter-balanced by the 
benefits to registrants and investors. First, we intend for these rules 
to eliminate uncertainty about which financial statements and periodic 
reports subsidiary issuers and guarantors must file. Second, the 
proposed rules require financial information that is more helpful to an 
investor in the two areas where summarized financial statements are 
permitted today.\39\ Finally, because registrants would be required to 
provide condensed consolidating financial information in all situations 
in which they must provide separate financial information, the 
investors will be able to compare the financial information among all 
offerings.
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    \39\ Condensed consolidating financial information requires the 
columnar presentation of each category of parent and subsidiary as 
issuer, guarantor, or non-guarantor. This more clearly distinguishes 
the assets, liabilities, revenues, expenses, and cash flows of the 
entities that are legally obligated under the indenture from those 
that are not, particularly if subsidiary guarantors themselves have 
consolidated operating subsidiaries that are not guarantors. Another 
important element of credit decisions is cash flow information. 
Condensed consolidating financial information requires this 
information while summarized financial information does not.
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    The proposed codification of current staff positions would also 
benefit companies by eliminating the need to create, submit, and obtain 
a no-action letter response from the Division. As stated above, in 
1997, the Division issued responses to 140 requests for SAB 53 no-
action positions. Based on discussions with external legal counsel who 
prepare no-action requests, we estimate that, on average, it takes 35 
hours to prepare a request for a no-action letter. Assuming that the 
external professional help costs $175 per hour,

[[Page 10589]]

the total cost for preparing a request for a no-action position is 
approximately $6100 per request. Applying these figures to the number 
of no-action letter requests to which we respond annually, we estimate 
the number of attorney hours spent annually on creating a request for a 
SAB 53 no-action position to be 4900 hours and the annual savings to 
registrants to be approximately $850,000. We request your comment on 
the reasonableness of our estimates.
    Section 23(a) of the Exchange Act \40\ requires us to consider the 
impact any new Exchange Act rule would have on competition. We do not 
believe that the proposed rules would have any anti-competitive effects 
since the proposed rules, to a large extent, simply codify the 
reporting requirements to which registrants are already subject. In the 
two situations in which the proposed rules require more than the 
current staff positions, we do not believe the proposed requirement to 
provide condensed consolidating financial information instead of 
summarized financial information would cause any anti-competitive 
effect. We request comment on whether the proposals, if adopted, would 
have an adverse effect on competition or would impose a burden on 
competition that is neither necessary nor appropriate in furthering the 
purposes of the Exchange Act. In addition, Section 3(f) of the Exchange 
Act requires us to consider adopting rules that require a public 
interest finding to consider whether the proposed rule will promote 
efficiency, competition and capital formation. We believe that the 
proposed rule amendments will have a positive, but unquantifiable, 
effect on efficiency, competition, and capital formation. We seek 
comment on the intended benefits and how these changes would affect 
competition, capital formation and market efficiency.
---------------------------------------------------------------------------

    \40\ 15 U.S.C. 78w(a)(2).
---------------------------------------------------------------------------

    For purposes of the Small Business Regulatory Enforcement Fairness 
Act of 1996, we also request information regarding the potential impact 
of the proposals on the economy on an annual basis. Would the 
amendments, if adopted, result or be likely to result in:
     An annual effect on the economy of $100 million or more;
     A major increase in costs or prices for consumers or 
individual industries; or
     Significant adverse effects on competition, investment, or 
innovation?
    Commentators should provide empirical data to support their views.
    Commenters are encouraged to provide views and data relating to any 
costs or benefits associated with the rule proposal. In particular, 
please identify any costs or benefits associated with the rule proposal 
relating to the preparation of condensed consolidating financial 
information instead of summarized financial information. Will the 
proposal have no substantial effect as anticipated, or will the 
proposal result in additional costs and benefits? Please describe and, 
if possible, quantify any foreseeable significant effects.

IX. Regulatory Flexibility Act Certification

    Pursuant to section 605(b) of the Regulatory Flexibility Act, 5 
U.S.C. 605(b), the Chairman of the Commission has certified that the 
proposal would not, if adopted, have a significant economic impact on a 
substantial number of small entities. The proposed rules largely codify 
the positions the staff has developed through Staff Accounting Bulletin 
No. 53, later interpretations and the registration statement review 
process. The rule proposals deviate from current practice only in the 
following two situations:
     A subsidiary with more than minimal operations issues 
securities, its parent guarantees the securities, and no subsidiary 
guarantees the securities; and
     A parent issues securities, a subsidiary with more than 
minimal operations guarantees the securities, and no other subsidiary 
guarantees the securities.
    Today, those registrants currently are permitted to provide 
summarized financial information instead of full financial statements. 
Under our proposals, those registrants would be required to provide 
condensed consolidating financial information instead of summarized 
financial information. As we discussed in our analysis of the costs and 
benefits of the proposed rule changes above, the burden to provide 
condensed consolidating information instead of summarized financial 
information would not have a substantial effect on any registrant.
    More specifically, we do not believe that our proposed rules would 
have a substantial impact on small entities. In the last ten years, the 
Division has responded to only one SAB 53 request in which the related 
offering was registered on a small business issuer form, and that 
company would not meet the definition of small business entity for 
Regulatory Flexibility Act purposes.\41\ We include the certification 
in this release as Attachment D and encourage written comments relating 
to it. Commenters should describe the nature of any impact on small 
entities and provide empirical data to support the extent of the 
impact.
---------------------------------------------------------------------------

    \41\ In order to qualify to use small business issuer forms to 
register an offering, the issuer must, among other things, have less 
than $25 million in assets and no more than $25 million in public 
float. Small business issuers who qualify to use small business 
issuer registration forms may also elect to use standard 
registration forms.
---------------------------------------------------------------------------

X. Paperwork Reduction Act

    We have submitted the proposals to the Office of Management and 
Budget for review in accordance with the Paperwork Reduction Act of 
1995, 44 U.S.C. 3501 et seq. Current Rule 3-10 requires full financial 
statements for all guarantors or securities and for all affiliates of 
those guarantors whose securities constitute a substantial portion of 
the collateral. For those registrants who qualify, we anticipate that 
proposed Rule 3-10 of Regulation S-X would reduce or eliminate the 
existing information collection requirements that are associated with 
current Rule 3-10. This information would potentially be required to be 
presented in several Securities Act registration statements and 
Exchange Act reports to assist investors in the determination of the 
credit worthiness of a security.
    The proposed rules will affect the inclusion of information in 
Securities Act registration Forms S-1, F-1, S-4 and F-4 (OMB control 
numbers 3235-0065, 3235-0258, 3235-0324, and 3235-0325, respectively). 
We estimate that the proposed rules will increase the average burden 
per form by approximately five minutes.\42\ The proposed rules also 
will affect the inclusion of information in Exchange Act Forms 10-K and 
10-Q (OMB control numbers 3235-0063 and 3235-0070). We estimate the 
proposed rules will increase the average burden per form by 
approximately three minutes and one minute, respectively.\43\

[[Page 10590]]

We estimated the increased burden hours for each form by dividing the 
estimated aggregate increased burden for all forms, whether or not the 
filers would be required to report under Rule 3-10, by the estimated 
total number of filers. The burden for Regulation S-X (OMB control 
number 3235-0009) will remain unchanged.
---------------------------------------------------------------------------

    \42\ To arrive at this number, we divided the estimated number 
of companies that will have to provide condensed consolidating 
financial information in lieu of summarized financial information 
per year (29) by the estimated number of filings on these forms per 
year (5653) and multipled that quotient (.00513) by the estimated 
number of hours to convert financials (16).
    \43\ To arrive at this number for Form 10-K, we divided the 
estimated number of companies that will have to provide condensed 
consolidating financial information in lieu of summarized financial 
information per year (29) by the estimated number of filings on 
these forms per year (10,329) and multipled that quotient (.00279) 
by the estimated number of hours to convert financials (16). To 
arrive at this number for Form 10-Q, we divided the estimated number 
of companies that will have to provide condensed consolidating 
financial information in lieu of summarized financial information 
per year (29) by the estimated number of filings on these forms per 
year (29,551) and multipled that quotient (.0009814) by the 
estimated number of hours to convert financials (16).
---------------------------------------------------------------------------

    The proposed changes would not affect the retention period. The 
filing of financial statements, as described in this release, is 
mandatory. They are not kept confidential. An agency may not conduct or 
sponsor, and a person is not required to respond to, a collection of 
information unless it displays a correctly valid control number.
    In accordance with 44 U.S.C. 3506(c)(2)(B), the Commission solicits 
comments to:
     Evaluate whether the proposed collection of information is 
necessary for the proper performance of the functions of the agency, 
including whether the information shall have practical utility;
     Evaluate the accuracy of the Commission's estimate of the 
burden of the proposed collection of information;
     Enhance the quality, utility, and clarity of the 
information to be collected; and
     Minimize the burden of collection of information on those 
who are to respond, including through the use of automated collection 
techniques or other forms for information technology.
    Persons desiring to submit comments on the collection of 
information requirements should direct them to the following persons: 
Desk Officer for the Securities and Exchange Commission, Office of 
Information and Regulatory Affairs, Office of Management and Budget, 
Room 3208, New Executive Office Building, Washington, D.C. 20503; and 
Jonathan G. Katz, Secretary, Securities and Exchange Commission, 450 
Fifth Street, N.W., Washington, D.C. 20549, and refer to File No. S7-7-
99. The Office of Management and Budget is required to make a decision 
concerning the collection of information between 30 and 60 days after 
publication of this release in the Federal Register, so a comment to 
OMB is best assured of having its full effect if OMB receives it within 
30 days of this publication.

XI. Statutory Bases

    We propose the rule changes explained in this release pursuant to 
sections 7,\44\ 10,\45\ and 19(a) \46\ of the Securities Act and 
sections 12,\47\ 13,\48\ and 15(d) \49\ of the Exchange Act.
---------------------------------------------------------------------------

    \44\ 15 U.S.C. 77g.
    \45\ 15 U.S.C. 77j.
    \46\ 15 U.S.C. 77t.
    \47\ 15 U.S.C. 78l.
    \48\ 15 U.S.C. 78m.
    \49\ 15 U.S.C. 78o(d).
---------------------------------------------------------------------------

List of Subjects in 17 CFR Parts 210, 228 and 240

    Reporting and recordkeeping requirements, Securities.

Text of the Proposed Rules

    For the reasons set out in the preamble, the Securities and 
Exchange Commission proposals to amend title 17, chapter II of the Code 
of Federal Regulations as follows:

PART 210--FORM AND CONTENT OF AND REQUIREMENTS FOR FINANCIAL 
STATEMENTS, SECURITIES ACT OF 1933, SECURITIES EXCHANGE ACT OF 
1934, PUBLIC UTILITY HOLDING COMPANY ACT OF 1935, INVESTMENT 
COMPANY ACT OF 1940, AND ENERGY POLICY AND CONSERVATION ACT OF 1975

    1. The authority citation for Part 210 continues to read as 
follows:

    Authority: 15 U.S.C. 77f, 77g, 77h, 77j, 77s, 77z-2, 77aa(25), 
77aa(26), 78j-i, 78l, 78m, 78n, 78o(d), 78u-5, 78w(a), 78ll(d), 
79e(b), 79j(a), 79n, 79t(a), 80a-8, 80a-20, 80a-29, 80a-30, 80a-
37(a), unless otherwise noted.

    2. Section 210.3-10 is revised to read as follows:


Sec. 210.3-10  Financial statements of guarantors, certain issuers of 
guaranteed securities registered or being registered.

    (a)(1) General rule. As a general rule, every issuer of a 
registered security that is guaranteed and every guarantor of a 
registered security must file the financial statements required for a 
registrant by Regulation S-X.
    (2) Operation of this rule. Paragraphs (b), (c), (d), (e), and (f) 
of this section are exceptions to the general rule of paragraph (a)(1) 
of this section. Paragraph (g) of this section is a special rule for 
recently acquired issuers or guarantors that overrides each of these 
exceptions. Only one paragraph can apply to a single issuer or 
guarantor. Paragraph (h) of this section defines some of the terms used 
in this section. Paragraph (i) of this section states the requirements 
for preparing the condensed consolidating financial information 
required by paragraphs (c), (d), (e), and (f) of this section.
    (b) Finance subsidiary issuer of securities guaranteed by its 
parent. When a company with no independent assets or operations issues 
securities and its parent guarantees those securities, the registration 
statement, annual report, or quarterly report need not include 
financial statements of the issuer if:
    (1) The issuer is wholly-owned by the parent guarantor;
    (2) The guarantee is full and unconditional;
    (3) No other subsidiaries of the parent guarantee the securities; 
and
    (4) The parent company's financial statements are filed for the 
periods specified by Sec. Sec. 210.3-01 and 210.3-02 and include a 
footnote stating that the issuer is a wholly-owned finance subsidiary 
of the parent with no independent assets or operations and the parent 
has fully and unconditionally guaranteed the securities.
    (c) Operating subsidiary issuer of securities guaranteed by its 
parent. When a company with independent assets or operations issues 
securities and its parent guarantees those securities, the registration 
statement, annual report, or quarterly report need not include 
financial statements of the issuer if:
    (1) The issuer is wholly-owned by the parent guarantor;
    (2) The guarantee is full and unconditional;
    (3) There are no subsidiaries of the parent that guarantee those 
securities; and
    (4) The parent company's financial statements are filed for the 
periods specified by Secs. 210.3-01 and 210.3-02 and include, in a 
footnote, condensed consolidating information for the same periods with 
a separate column for the parent company, the subsidiary issuer, any 
other subsidiaries of the parent on a combined basis, consolidating 
adjustments, and the total consolidated amounts.
    (d) Subsidiary issuer of securities guaranteed by its parent and 
one or more other subsidiaries of that parent. When a company issues 
securities and both its parent and one or more other subsidiaries of 
that parent guarantee those securities, the registration statement need 
not include financial statements of the issuer or the subsidiary 
guarantor(s) if:
    (1) The issuer and each of the subsidiary guarantors are wholly-
owned by the parent guarantor;
    (2) The guarantees are full and unconditional;
    (3) The guarantees are joint and several; and
    (4) The parent company's financial statements are filed for the 
periods specified by Secs. 210.3-01 and 210.3-02

[[Page 10591]]

and include, in a footnote, condensed consolidating financial 
information for the same periods with a separate column for the parent 
company, the subsidiary issuer, the guarantor subsidiaries on a 
combined basis, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.
    (e) Subsidiary guarantor of securities issued by the parent of that 
subsidiary. When a parent company issues securities and one subsidiary 
of that issuer guarantees those securities, the registration statement 
need not include financial statements of the subsidiary guarantor if:
    (1) The subsidiary guarantor is wholly-owned by the parent issuer;
    (2) The guarantee is full and unconditional;
    (3) There are no other subsidiaries of that parent that guarantee 
the securities; and
    (4) The parent company's financial statements are filed for the 
periods specified by Secs. 210.3-01 and 210.3-02 and include, in a 
footnote, condensed consolidating financial information for the same 
periods with a separate column for the parent company, the subsidiary 
guarantor, any other subsidiaries of the parent on a combined basis, 
consolidating adjustments, and the total consolidated amounts.
    (f) Subsidiary guarantors of securities issued by the parent of 
those subsidiaries. When a parent company issues securities and more 
than one subsidiary of that issuer guarantees those securities, the 
registration statement need not include financial statements of the 
subsidiary guarantors if:
    (1) Each of the subsidiary guarantors is wholly-owned by the parent 
issuer;
    (2) The guarantees are full and unconditional;
    (3) The guarantees are joint and several; and
    (4) The parent company's financial statements are filed for the 
periods specified by Secs. 210.3-01 and 210.3-02 and include, in a 
footnote, condensed consolidating financial information for the same 
periods with a separate column for the parent company, the subsidiary 
guarantors on a combined basis, the non-guarantor subsidiaries on a 
combined basis, consolidating adjustments, and the total consolidated 
amounts.
    (g) Recently acquired issuers or guarantors. (1) The registration 
statement of the parent company must include the financial statements 
specified in paragraph (g)(2) of this section for any subsidiary that 
otherwise would meet the conditions in paragraph (c), (d), (e), or (f) 
of this section for omission of separate financial statements if:
    (i) The subsidiary has not been included in the audited 
consolidated results of the parent company for at least a nine month 
period; and
    (ii) The net book value or purchase price, whichever is greater, of 
the subsidiary exceeds 20% of the shareholders' equity of the parent 
company on a consolidated basis.

    Instruction to paragraph (g)(1): The significance test of 
paragraph (g)(1)(ii) of this section should be computed using 
amounts for the subsidiary and parent as of the most recent fiscal 
year end preceding the acquisition.

    (2) Financial statements required--
    (i) Audited financial statements for a subsidiary described in 
paragraph (g)(1) of this section must be filed for at least the 
subsidiary's most recent fiscal year. In addition, unaudited financial 
statements must be filed for any interim periods specified in 
Secs. 210.3-01 and 210.3-02.
    (ii) The financial statements should conform to the requirements of 
Regulation S-X, except that supporting schedules need not be filed.
    (3) Acquisitions of a group of subsidiary issuers or guarantors 
that are related prior to their acquisition shall be aggregated for 
purposes of applying the 20% test in paragraph (g)(1)(ii) of this 
section. Subsidiaries shall be deemed to be related prior to their 
acquisition if:
    (i) They are under common control or management;
    (ii) The acquisition of one subsidiary is conditioned on the 
acquisition of each subsidiary; or
    (iii) The acquisition of each subsidiary is conditioned on a single 
common event.
    (4) Information required by this paragraph (g) of this section is 
not required to be included in an annual report or quarterly report.
    (h) Definitions. For the purposes of this section--
    (1) A subsidiary is wholly-owned if all of its outstanding voting 
shares are owned, either directly or indirectly, by the parent company. 
If the subsidiary is not in corporate form, it is ``wholly-owned'' if 
all of its outstanding ownership interests are owned, either directly 
or indirectly, by the parent company.
    (2) A guarantee is full and unconditional, if, when an issuer of a 
guaranteed security has failed to make a scheduled payment, any holder 
of the guaranteed security may immediately bring suit directly against 
the guarantor for payment of all amounts due and payable.
    (3) Annual report refers to annual reports on Form 10-K, Form 10-
KSB, or Form 20-F (Sec. Sec. 249.310, 249.310b, or 249.220f of this 
chapter).
    (4) Quarterly report refers to quarterly reports on Form 10-Q or 
Form 10-QSB (Sec. Sec. 249.308a or 249.308b of this chapter).
    (i) Instructions for preparation of the condensed consolidating 
financial information required by paragraphs (c), (d), (e), and (f) of 
this section.
    (1) Present the financial information in sufficient detail to allow 
investors to determine the assets, results of operations, and cash 
flows of each of the consolidating groups;
    (2) Follow the general guidance in Sec. 210.10-01 for the form and 
content for condensed financial statements;
    (3) The financial information should be audited for the same 
periods that the parent company financial statements are audited;
    (4) The parent company column should present investments in all 
subsidiaries under the equity method;
    (5) All subsidiary issuer or guarantor columns should present 
investments in non-guarantor subsidiaries under the equity method;
    (6) Provide separate columns for each guarantor by legal 
jurisdiction if differences in domestic or foreign laws affect the 
enforceability of the guarantees;
    (7) Include the following disclosures:
    (i) Each subsidiary issuer and/or guarantor is wholly owned by the 
parent company;
    (ii) All guarantees are full and unconditional; and
    (iii) Where there is more than one guarantor, all guarantees are 
joint and several;
    (8) Disclose any significant restrictions on the ability of the 
parent company or any guarantor to obtain funds from its subsidiaries 
by dividend or loan;
    (9) Provide the disclosures prescribed by Sec. 210.4-08(e)(3) with 
respect to the guarantors;
    (10) Disclose additional financial and narrative information about 
each guarantor if the information would be material for investors to 
evaluate the sufficiency of the guarantee;
    (11) The financial information shall include disclosures sufficient 
so as to make the information presented not misleading;
    (12) Disclosure that would substantially duplicate disclosure 
elsewhere in the parent's financial statements is not required; and
    (13) Where the parent company's consolidated financial statements 
are

[[Page 10592]]

prepared on a comprehensive basis other than U.S. Generally Accepted 
Accounting Principles, reconcile the information in each column to U.S. 
Generally Accepted Accounting Principles to the same extent specified 
by Item 17 of Form 20-F (Sec. 249.220f of this chapter).
    3. Section 210.3-16 is added to read as follows:


Sec. 210.3-16  Financial statements of affiliates whose securities 
collateralize an issue registered or being registered.

    (a) For each of the registrant's affiliates whose securities 
constitute a substantial portion of the collateral for any class of 
securities registered or being registered, there shall be filed the 
financial statements that would be required if the affiliate were a 
registrant and required to file financial statements. However, 
financial statements need not be filed pursuant to this section for any 
person whose statements are otherwise separately included in the filing 
on an individual basis or on a basis consolidated with its 
subsidiaries.
    (b) For the purposes of this section, securities of a person shall 
be deemed to constitute a substantial portion of collateral if the 
aggregate principal amount, par value, or book value of the securities 
as carried by the registrant, or the market value of such securities, 
whichever is the greatest, equals 20 percent or more of the principal 
amount of the secured class of securities.

PART 228--INTEGRATED DISCLOSURE SYSTEM FOR SMALL BUSINESS ISSUERS

    4. The authority citation for part 228 continues to read as 
follows:

    Authority: 15 U.S.C. 77e, 77f, 77g, 77h, 77j, 77k, 77s, 77z-2, 
77aa(25), 77aa(26), 77ddd, 77eee, 77ggg, 77hhh, 77jjj, 77nnn, 77sss, 
78l, 78m, 78n, 78o, 78u-5, 78w, 78ll, 80a-8, 80a-29, 80a-30, 80a-37, 
and 80b-11, unless otherwise noted.

    5. Section 228.310 is amended by redesignating Note 3 as Note 4 and 
adding new Note 3 to read as follows:


Sec. 228.310.  (Item 310) Financial Statements.

    Notes:
* * * * *
    3. Financial statements for a subsidiary of a small business 
issuer that issues securities guaranteed by the small business 
issuer or guarantees securities issued by the small business issuer 
should be presented as required by Rule 3-10 of Regulation S-X (17 
CFR 210.3-10), except that the periods presented are those required 
by paragraph (a) of this item.
* * * * *

PART 240--GENERAL RULES AND REGULATIONS, SECURITIES EXCHANGE ACT OF 
1934

    6. The authority citation for part 240 continues to read, in part, 
as follows:

    Authority: 15 U.S.C. 77c, 77d, 77g, 77j, 77s, 77z-2, 77eee, 
77ggg, 77nnn, 77sss, 77ttt, 78c, 78d, 78f, 78i, 78j, 78j-1, 78k, 
78k-1, 78l, 78m, 78n, 78o, 78p, 78q, 78s, 78u-5, 78w, 78x, 78ll(d), 
78mm, 79q, 79t, 80a-20, 80a-23, 80a-29, 80a-37, 80b-3, 80b-4, and 
80b-11, unless otherwise noted.
* * * * *
    7. Section 240.12h-5 is added to read as follows:


Sec. 240.12h-5  Exemption for subsidiary guarantors and subsidiary 
issuers of guaranteed securities.

    (a) Any issuer of a guaranteed security or guarantor of a security 
that is permitted to omit financial statements by Sec. 210.3-10 of 
Regulation S-X of this Chapter is exempt from the requirements of 
Section 13(a) or 15(d) of the Act (15 U.S.C. 78m(a) or 78o(d)).
    (b) Any issuer of a guaranteed security or guarantor of a security 
that would be permitted to omit financial statements by Sec. 210.3-10 
of Regulation S-X of this Chapter, except for the operation of 
paragraph (g) of that section, is exempt from the requirements of 
Section 13(a) or 15(d) of the Act (15 U.S.C. 78m(a) or 78o(d)).

    Dated: February 26, 1999.

    By the Commission.
Margaret H. McFarland,
Deputy Secretary.
    Note: Appendices A, B, C, and D to the preamble will not appear 
in the Code of Federal Regulations.

Appendix A--Applying the Proposed Rule to Specific Fact Patterns

    In each of the following examples, assume that:
     All guarantees are full and unconditional;
     All guarantees are joint and several; and
     All subsidiaries are wholly-owned.

Examples 1-3: Parent Issuer With No Operations

Example Number 1: All Subsidiaries Guarantee Securities

    Parent company issues securities. The parent company is a 
holding company with no independent operations. All of the parent 
company's subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(f). That financial information would include a separate column 
for: the parent company, the subsidiary guarantors on a combined 
basis, consolidating adjustments, and the total consolidated 
amounts.

Example Number 2: More Than One, but not All, of the Subsidiaries 
Guarantee the Securities

    Parent company issues securities. The parent company is a 
holding company with no independent operations. More than one, but 
not all, of the parent company's subsidiaries guarantee the 
securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(f). That financial information would include a separate column 
for: the parent company, the subsidiary guarantors on a combined 
basis, the non-guarantor subsidiaries on a combined basis; 
consolidating adjustments, and the total consolidated amounts.

Example No. 3: One Subsidiary Guarantees the Securities

    Parent company issues securities. The parent company is a 
holding company with no independent operations. One of the parent 
company's subsidiaries guarantees the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(e). That financial information would include a separate column 
for: the parent company, the subsidiary guarantor, the non-guarantor 
subsidiaries on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Examples 4-6: Parent Issuer With Operations

Example No. 4: All Subsidiaries Guarantee the Securities

    Parent company issues securities. In addition to its 
subsidiaries, the parent company has independent operations. All of 
the parent company's subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(f). That financial information would include a separate column 
for: the parent company, the subsidiary guarantors on a combined 
basis, consolidating adjustments, and the total consolidated 
amounts.

Example No. 5: More Than One, but not All, of the Subsidiaries 
Guarantee the Securities

    Parent company issues securities. In addition to its 
subsidiaries, the parent company has independent operations. More 
than one, but not all, of the parent company's subsidiaries 
guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(f). That financial information would include a separate column 
for: the parent company, the subsidiary guarantors on a combined 
basis, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Example No. 6: One Subsidiary Guarantees the Securities

    Parent company issues securities. In addition to its 
subsidiaries, the parent company has independent operations. One of 
the parent company's subsidiaries guarantees the securities.

[[Page 10593]]

    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(f). That financial information would include a separate column 
for: the parent company, the subsidiary guarantor, the non-guarantor 
subsidiaries on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Examples 7-10: Finance Subsidiary Issuer. Parent Guarantees the 
Securities and Has No Operations

Example No. 7: No Other Subsidiaries Guarantee the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. The parent company 
has no independent operations. None of the parent company's other 
subsidiaries guarantee the securities. Required financial 
information: In accordance with proposed Rule 3-10(b), the only 
required financial information would be the financial statements of 
the parent company. Those financial statements would include a 
footnote stating that the issuer is a wholly-owned finance 
subsidiary of the parent with no independent assets or operations 
and the parent has fully and unconditionally guaranteed the 
securities.

Example No. 8: All Other Subsidiaries Guarantee the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. The parent company 
has no independent operations. All of the parent company's other 
subsidiaries guarantee the securities. Required financial 
information: Condensed consolidating financial information prepared 
in accordance with proposed Rule 3-10(d). That financial information 
would include a separate column for: the parent company, the 
subsidiary issuer, the subsidiary guarantors on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Example No. 9: More than one, but not all, of the other subsidiaries 
guarantee the securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. The parent company 
has no independent operations. More than one, but not all, of the 
parent company's other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, the non-guarantor subsidiaries on a 
combined basis, consolidating adjustments, and the total 
consolidated amounts.

Example No. 10: One Other Subsidiary Guarantees the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. The parent company 
has no independent operations. One of the parent company's other 
subsidiaries guarantees the securities. Required financial 
information: Condensed consolidating financial information prepared 
in accordance with proposed Rule 3-10(d). That financial information 
would include a separate column for: the parent company, the 
subsidiary issuer, the subsidiary guarantor, the non-guarantor 
subsidiaries on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Examples 11-14: Finance Subsidiary Issuer. Parent Guarantees the 
Securities and Has Operations

Example No. 11: No Other Subsidiaries Guarantee the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. In addition to its 
subsidiaries, the parent company has independent operations. None of 
the parent company's other subsidiaries guarantee the securities.
    Required financial information: In accordance with proposed Rule 
3-10(b), the only required financial information would be the 
financial statements of the parent company. Those financial 
statements would include a footnote stating that the issuer is a 
wholly-owned finance subsidiary of the parent with no independent 
assets or operations and the parent has fully and unconditionally 
guaranteed the securities.

Example No. 12: All Other Subsidiaries Guarantee the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. In addition to its 
subsidiaries, the parent company has independent operations. All of 
the parent company's other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Example No. 13: More Than One, but not All, of the Other Subsidiaries 
Guarantee the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. In addition to its 
subsidiaries, the parent company has independent operations. More 
than one, but not all, of the parent company's other subsidiaries 
guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary guarantors on a combined 
basis, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Example No. 14: One Other Subsidiary Guarantees the Securities

    A finance subsidiary issues securities. The ultimate parent of 
that finance company guarantees those securities. In addition to its 
subsidiaries, the parent company has independent operations. One of 
the parent company's other subsidiaries guarantees the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantor, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Examples 15-18: Operating Subsidiary Issuer. Parent Guarantees the 
Securities and Has No Operations

Example No. 15: No Other Subsidiaries Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. The parent 
company has no independent operations. None of the parent company's 
other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(c). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, any other 
subsidiaries on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Example No. 16: All Other Subsidiaries Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. The parent 
company has no independent operations. All of the parent company's 
other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Example No. 17: More Than One, But Not All, of the Other Subsidiaries 
Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. The parent 
company has no independent operations. More than one, but not all of 
the parent company's other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, the non-guarantor subsidiaries on a 
combined basis, consolidating adjustments, and the total 
consolidated amounts.

Example No. 18: One Other Subsidiary Guarantees the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating

[[Page 10594]]

subsidiary guarantees those securities. The parent company has no 
independent operations. One of the parent company's other 
subsidiaries guarantees the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantor, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Examples 19-22: Operating Subsidiary Issuer. Parent Guarantees the 
Securities and Has Independent Operations

Example No. 19: No Other Subsidiaries Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. In 
addition to its subsidiaries, the parent company has independent 
operations. None of the parent company's other subsidiaries 
guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with Rule 3-10(c). That 
financial information would include a separate column for: the 
parent company, the subsidiary issuer, the non-guarantor 
subsidiaries on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Example No. 20: All Other Subsidiaries Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. In 
addition to its subsidiaries, the parent company has independent 
operations. All of the parent company's other subsidiaries guarantee 
the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, consolidating adjustments, and the 
total consolidated amounts.

Example No. 21: More Than One, But Not All, of the Other Subsidiaries 
Guarantee the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. In 
addition to its subsidiaries, the parent company has independent 
operations. More than one, but not all, of the parent company's 
other subsidiaries guarantee the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantors on a combined basis, the non-guarantor subsidiaries on a 
combined basis, consolidating adjustments, and the total 
consolidated amounts.

Example No. 22: One Other Subsidiary Guarantees the Securities

    An operating subsidiary issues securities. The ultimate parent 
of that operating subsidiary guarantees those securities. In 
addition to its subsidiaries, the parent company has independent 
operations. One of the parent company's other subsidiaries 
guarantees the securities.
    Required financial information: Condensed consolidating 
financial information prepared in accordance with proposed Rule 3-
10(d). That financial information would include a separate column 
for: the parent company, the subsidiary issuer, the subsidiary 
guarantor, the non-guarantor subsidiaries on a combined basis, 
consolidating adjustments, and the total consolidated amounts.

Example 23: Trust Preferred Securities

    A wholly-owned special purpose business trust with no 
independent operations issues trust preferred securities. The trust 
loans the proceeds of the offering of the trust preferred securities 
to its ultimate parent and the parent issues debentures to the 
trust. The ultimate parent guarantees the trust preferred securities 
through a series of ``back-up undertakings.'' In this situation, the 
trust would be treated as a finance subsidiary under Rule 3-10(b), 
so the only required financial information would be a narrative 
discussion of the trust and the securities.
    Required financial information: Parent would present the 
preferred securities as a separate line item on its balance sheet 
entitled ``Company-Obligated Mandatorily Redeemable Preferred 
Securities of Subsidiary Trust Holding Solely Debentures of the 
Company.''
     Parent would include, in a footnote to its financial 
statements, disclosure that the sole assets of the trust are the 
parent's debentures.
     Parent would specify in a footnote to its financial 
statements the principal amount, interest rate and maturity date of 
the debentures held by the trust.
     Parent would include in an audited footnote to its 
audited financial statements disclosure:
    1. That the trust is wholly-owned;
    2. That the sole assets of the trust are the parent's 
debentures;
    3. Of the principal amount, interest rate and maturity date of 
the parent's debentures held by the trust; and
    4. That, considered together, the ``back-up undertakings'' 
constitute a full and unconditional guarantee by the parent of the 
trust's obligations under the preferred securities.

Appendix B--Applying the Proposed Rules to Subsidiary Guarantors That 
Are Added or Deleted in the Future

    The analysis regarding the financial information required in a 
Securities Act registration statement is based solely on the 
securities that are offered under that registration statement. You 
should look at the registrants and the securities required to be 
listed on the cover page of the registration statement when you 
determine which financials statements you must include. A common 
question involves how to treat guarantors that you add after the 
registration statement becomes effective. The answer will relate to 
three areas:
     Securities Act treatment of the ``later-added'' 
guarantees;
     Financial statement requirements for ``later-added'' 
guarantors; and
     The separate Exchange Act reporting obligations of 
those ``later-added'' guarantors.

The following examples involve the application of the proposed rules 
to these three areas. In each of the following examples, assume 
that:
     All guarantees are full and unconditional;
     All guarantees are joint and several; and
     All subsidiaries are wholly-owned.
    Example No. 1. Parent company registers an offering of its debt 
securities under the Securities Act. More than one, but not all, of 
its subsidiaries guarantee the securities. The indenture states that 
the parent company may, without the approval of the debt holders, 
add or delete subsidiary guarantors in the future. The securities 
offering is not a shelf offering.
    Financial information required in the Securities Act 
registration statement: The registration statement would include 
condensed consolidating financial information prepared in accordance 
with proposed Rule 3-10(f). That financial information would include 
a separate column for: the parent company, the subsidiary guarantors 
as of the date the registration statement became effective on a 
combined basis, the subsidiaries that were not guarantors as of the 
date the registration statement became effective on a combined 
basis, consolidating adjustments, and the total consolidated 
amounts.
    Treatment of future guarantees under the Securities Act: There 
would be no Securities Act event at the time future guarantors are 
added or deleted. The decision to add or delete guarantors would not 
involve an investment decision by the debt holders. Therefore, there 
would be no need to amend the registration statement after it became 
effective.
    Exchange Act reporting requirements of existing and future 
guarantors: Proposed Rule 12h-5 would exempt the existing guarantors 
from separately reporting under the Exchange Act. Because future 
guarantors would not be registrants on a Securities Act registration 
statement, they would have no separate reporting obligation under 
Section 15(d) of the Exchange Act. Therefore, there would be no need 
to provide an exemption for these future guarantors from the 
requirements of Section 15(d).
    Financial statement requirements in parent company's Exchange 
Act reports: The financial statements in the parent company's 
periodic reports would be the same as in the Securities Act 
registration statement and there would continue to be condensed 
consolidating financial information with the same columns of 
information. However, as the companies that comprise each column 
would change, the parent company would revise the makeup of that 
column of information. For example, the guarantor subsidiaries 
column and the non-guarantor subsidiaries column may reflect 
different subsidiaries, depending on which

[[Page 10595]]

subsidiaries were in each category at that time. In each of its 
Exchange Act reports, the parent company would look to which of its 
subsidiaries was a guarantor as of the end of the period reflected 
in that periodic report. A footnote to the condensed consolidating 
financial information should discuss any changes in the composition 
of the guarantors that comprise the guarantor column.
    Example No. 2. Parent company files a Securities Act 
registration statement relating to a shelf offering of its debt 
securities. The registration statement states that more than one, 
but not all, of its subsidiaries will guarantee the securities. The 
registration statement includes each of the current subsidiary 
guarantors as a co-registrant. The indenture states that the parent 
company may, without the approval of the debt holders, add or delete 
subsidiary guarantors in the future.
    Financial information required in the Securities Act 
registration statement: The registration statement would include 
condensed consolidating financial information prepared in accordance 
with proposed Rule 3-10(f). That financial information would include 
a separate column for: the parent company, the subsidiary guarantors 
as of the date the registration statement became effective on a 
combined basis, the subsidiaries that were not guarantors as of the 
date the registration statement became effective on a combined 
basis, consolidating adjustments, and the total consolidated 
amounts.
    Treatment of future guarantees under the Securities Act: You 
will have different answers depending on whether the guaranteed 
securities have already been offered or whether they will be offered 
after guarantors are added or deleted. For purposes of this 
analysis, assume:
     That the shelf registration statement registered the 
offer and sale of $500 million in debt securities;
     That the parent company sold $200 million of those 
securities after the registration statement became effective; and
     After that sale, the parent company elected to add or 
delete subsidiary guarantors, both with respect to the $200 million 
of securities it has sold and the $300 million of securities that it 
may sell in the future.
    For the same reasons as we discussed in Example No. 1, there 
would not be a Securities Act registration event with respect to the 
$200 million of securities that were already sold. However, the 
registration statement would have to be updated to properly reflect 
the subsidiary guarantors with respect to any offers or sales of the 
remaining $300 million of securities. If new guarantors were added 
to the registration statement, this update would relate to offers 
and sales of guarantees that were not registered originally. 
Therefore, this update could not be done through a post-effective 
amendment. Instead, a new registration statement would be filed to 
reflect the new guarantors. The parent company and the continuing 
guarantors could rely on Rule 429 to combine this registration 
statement with the original shelf registration statement. There 
would be no additional fee. This new registration statement would 
have to be filed before any offers of those guarantees could be made 
and would have to be effective before any sales. Also, the new 
registration statement would continue to include condensed 
consolidating financial information in accordance with proposed Rule 
3-10(f). However, because the companies that comprise each column 
would have changed, the parent company would revise the makeup of 
that column. For example, the guarantor subsidiaries column and the 
non-guarantor subsidiaries column would reflect different 
subsidiaries, depending on which subsidiaries were in each category 
at that time. A footnote to the condensed consolidating financial 
information should discuss any changes in the composition of the 
guarantors that comprise the guarantor column.
    Exchange Act reporting requirements of existing and future 
guarantors: Proposed Rule 12h-5 would exempt the existing guarantors 
from separately reporting under the Exchange Act. Because future 
guarantors on the $200 million of securities that were already sold 
would not be registrants on a Securities Act registration statement, 
they would have no separate reporting obligation at that time. 
Therefore, there would be no need to provide an exemption for these 
future guarantors. However, if future guarantors were added to the 
registration statement with respect to offers and sales of the $300 
million of securities remaining on the registration statement, they 
would have a separate reporting obligation when the registration 
statement that included them as registrants became effective. 
Proposed Rule 12h-5 would exempt these guarantors from the 
requirements of Section 15(d).
    Financial statement requirements in parent company's Exchange 
Act reports: The financial information in the parent company's 
periodic reports would be the same as in the Securities Act 
registration statement and there would continue to be condensed 
consolidating financial information with the same columns of 
information. However, as the companies that comprise each column 
would change, the parent company would revise the makeup of that 
column of information. In each of its Exchange Act reports, the 
parent company would look to which of its subsidiaries was a 
guarantor as of the end of the period reflected in that periodic 
report. A footnote to the condensed consolidating financial 
information should discuss any changes in the composition of the 
guarantors that comprise the guarantor column.

Appendix C--What does ``wholly-owned'' mean under proposed Rule 3-10?

    Example No. 1. Parent company own 100% of the voting shares of 
SubA. SubA owns 100% of the voting shares of Sub1.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Is Sub1 a wholly-owned subsidiary of SubA? Yes.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? Yes.
    Example No. 2. Parent company own 100% of the voting shares of 
SubA. SubA owns 99% of the voting shares of Sub1. The remaining 1% 
of the voting shares of Sub1 is owned by a party that is not a 
wholly-owned subsidiary of the parent company.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Is Sub1 a wholly-owned subsidiary of SubA? No.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? No.
    Example No. 3. Parent company owns 99% of the voting shares of 
SubA. The remaining 1% of the voting shares of SubA are owned by a 
party that is not a wholly-owned subsidiary of the parent company. 
SubA owns 100% of the voting shares of Sub1.
    Is SubA a wholly-owned subsidiary of the parent company? No.
    Is Sub1 a wholly-owned subsidiary of SubA? Yes.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? No.
    Example No. 4. Parent company owns 100% of the voting shares of 
SubA and 100% of the voting shares of SubB. SubA owns 60% of the 
voting shares of Sub1 and SubB owns 40% of the voting shares of 
Sub1.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Is SubB a wholly-owned subsidiary of the parent company? Yes.
    Is Sub1 a wholly-owned subsidiary of SubA? No.
    Is Sub1 a wholly-owned subsidiary of SubB? No.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? Yes.
    Example No. 5. Parent company owns 100% of the voting shares of 
SubA.
    Parent company also owns 60% of the voting shares of Sub1. SubA 
owns 40% of the voting shares of Sub1.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Is Sub1 a wholly-owned subsidiary of SubA? No.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? Yes.
    Example No. 6. Parent company owns 99% of the voting shares of 
SubA. As required by the law in its home country, a director of SubA 
owns the remaining 1% of the voting shares of SubA. SubA owns 100% 
of the voting shares of Sub1.
    Is SubA a wholly-owned subsidiary of the parent company? No.
    Is Sub1 a wholly-owned subsidiary of SubA? No.
    Is Sub1 an indirect, wholly-owned subsidiary of the parent 
company? No.

    Note: This position is different than current staff 
interpretations.

    Example No. 7. Parent company owns 100% of the voting shares of 
SubA. SubA has outstanding securities convertible into its voting 
shares. These convertible securities are held by a party that is not 
a wholly-owned subsidiary of the parent.
    Is SubA a wholly-owned subsidiary of the parent company? No.
    Example No. 8. Parent company owns 100% of the voting shares of 
SubA. SubA has outstanding securities convertible into the parent 
company's voting shares. These convertible securities are held by a 
party that is not a wholly-owned subsidiary of the parent.

[[Page 10596]]

    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Example No. 9. Parent company owns 100% of the voting shares of 
SubA. SubA has outstanding options exercisable into its voting 
shares. These options are held by a party that is not a wholly-owned 
subsidiary of the parent.
    Is SubA a wholly-owned subsidiary of the parent company? No.
    Example No. 10. Parent company owns 100% of the voting shares of 
SubA. SubA has outstanding options exercisable into the parent 
company's voting shares. These convertible securities are held by a 
party that is not a wholly-owned subsidiary of the parent.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.
    Example No. 11. Parent company owns 100% of the common stock of 
SubA. SubA has a class of preferred stock outstanding. That 
preferred stock is 100% owned by a party that is not a wholly-owned 
subsidiary of the parent company. The common equity has full voting 
rights. The preferred stock is non-voting.
    Is SubA a wholly-owned subsidiary of the parent company? Yes.

Appendix D--Regulatory Flexibility Act Certification

    I, Arthur Levitt, Chairman of the Securities and Exchange 
Commission, hereby certify pursuant to 5 U.S.C. 605(b) that proposed 
amendments to Rule 3-10 of Regulation S-X and Item 310 of Regulation 
S-B, as well as new Rule 3-16 of Regulation S-X and new Exchange Act 
Rule 12h-5, if adopted, will not have a significant economic impact 
on a substantial number of small entities. The amendments and new 
rules largely codify the positions the staff has developed through 
Staff Accounting Bulletin No. 53, later interpretations and the 
registration statement review process. Since the registrants already 
follow these standards, the proposed amendments would not impose a 
significant impact. Additionally, a review of Division responses to 
SAB 53 exemptive requests over the last ten years indicates that 
only one request related to an offering that was registered on a 
small business form, and that company would not meet the definition 
of small business entity for Regulatory Flexibility Act purposes. 
Accordingly, the proposed amendments and new rules would not have a 
significant economic impact on a substantial number of small 
entities.

    Dated: February 26, 1999.
Arthur Levitt,
Chairman.
[FR Doc. 99-5444 Filed 3-4-99; 8:45 am]
BILLING CODE 8010-01-U