[Federal Register Volume 83, Number 242 (Tuesday, December 18, 2018)]
[Notices]
[Pages 64907-64909]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-27281]
-----------------------------------------------------------------------
SECURITIES AND EXCHANGE COMMISSION
[Release No. 34-84809; File No. SR-MSRB-2018-08]
Self-Regulatory Organizations; Municipal Securities Rulemaking
Board; Order Granting Approval of a Proposed Rule Change Concerning
Certain Data Elements on Form G-45 Under MSRB Rule G-45, on Reporting
of Information on Municipal Fund Securities
December 12, 2018.
I. Introduction
On October 15, 2018, the Municipal Securities Rulemaking Board (the
``MSRB'' or ``Board'') filed with the Securities and Exchange
Commission (the ``SEC'' or ``Commission''), pursuant to Section
19(b)(1) of the Securities Exchange Act of 1934 (``Act'') \1\ and Rule
19b-4 thereunder,\2\ a proposed rule change to amend Form G-45 under
MSRB Rule G-45, on reporting of information on municipal fund
securities,\3\ to clarify a data element concerning the program
management fee, to add a data element concerning the investment option
closing date, and to delete data elements concerning annualized three-
year performance information (the ``proposed rule change''). The
proposed rule change was published for comment in the Federal Register
on November 2, 2018.\4\ In the Notice of Filing, the MSRB requested
that the proposed rule change become effective on June 30, 2019.\5\
---------------------------------------------------------------------------
\1\ 15 U.S.C. 78s(b)(1).
\2\ 17 CFR 240.19b-4.
\3\ MSRB Form G-45 is an electronic form on which submissions of
the information required by Rule G-45 are made to the MSRB.
\4\ Securities Exchange Act Release No. 84496 (October 29, 2018)
(the ``Notice of Filing''), 83 FR 55214 (November 2, 2018).
\5\ See Notice of Filing.
---------------------------------------------------------------------------
The Commission did not receive any comment letters on the proposed
rule change.
II. Description of Proposed Rule Change
In the Notice of Filing, the MSRB stated that the purpose of the
proposed rule change is to refine and enhance certain of the investment
option data that the MSRB collects under Rule G-45 from underwriters to
529 savings plans \6\ and ABLE programs.\7\ Specifically, the MSRB
stated that it proposes to amend Form G-45 to (i) clarify a data
element concerning the program management fee, (ii) add a data element
concerning the investment option closing date, and (iii) delete data
elements concerning annualized three-year performance information.\8\
The MSRB also stated that the proposed rule change would provide
information that would enhance the MSRB's and other regulators' ability
to effectively and efficiently analyze 529 savings plans and ABLE
programs to assess the impact of each 529 savings plan and ABLE program
on the market, to evaluate trends and differences, and to gain an
understanding of the aggregate risk taken by investors.\9\
---------------------------------------------------------------------------
\6\ Section 529 of the Internal Revenue Code of 1986, as amended
(the ``Code'') established savings plans (``529 savings plans'') to
encourage saving for future education costs. 26 U.S.C.
529(b)(1)(A)(ii).
\7\ ABLE programs are programs designed to implement Section
529A to the Code. 26 U.S.C. 529A. Section 529A of the Code permits a
state, or an agency or instrumentality thereof, to establish and
maintain a tax-advantaged savings program to help support
individuals with disabilities in maintaining health, independence,
and quality of life. See Notice of Filing.
\8\ See Notice of Filing.
\9\ Id.
---------------------------------------------------------------------------
The MSRB stated that throughout the seven reporting periods during
which the MSRB has analyzed data submitted on Form G-45, the MSRB has
observed anomalies in the data submitted under Investment Option
information.\10\ The MSRB stated that those anomalies related to the
program management fee and to investment options that closed during the
reporting period. Form G-45 requires that an underwriter report the
program management fee (expressed as an annual percentage of 529
savings plan or ABLE program assets) assessed by the 529 savings plan
or ABLE program.\11\ The MSRB noted that the program management fee
typically is a separately identifiable percentage that is shown in the
fee table for the 529 savings plan or ABLE program, but for some 529
savings plans and ABLE programs, this is not the case.\12\ The MSRB
stated that instead for those 529 savings plans or ABLE programs, the
program management fee is assessed by the underlying mutual fund in
which the investment option invests and this is typically done through
a 529 or ABLE share class of the mutual fund.\13\ The MSRB further
noted that underwriters for those 529 savings plans or ABLE programs
generally report the program management fee as zero on Form G-45, and
then may add explanatory information in the notes section of the form
about the fee.\14\ The MSRB stated that such explanatory information,
however, may or may not actually disclose the program management fee in
a format that is typically used for
[[Page 64908]]
comparison--i.e., as an annual percentage of 529 savings plan or ABLE
program assets.\15\ The MSRB stated that the proposed rule change would
clarify that the underwriter must report the program management fee as
an annual percentage of assets (e.g., x.xx%) no matter whether the
program management fee is assessed by the underlying mutual fund or by
the 529 savings plan or ABLE program itself.\16\ The MSRB stated that
the underwriter would not be able to report the program management fee
as zero and then explain in a note that it is assessed by the
underlying mutual fund.\17\ Thus, the MSRB stated, the proposed rule
change would allow the MSRB, as well as other regulators, to analyze
data in a uniform format that would facilitate (i) comparison among 529
savings plans and ABLE programs, (ii) the evaluation of trends and
differences, and (iii) the identification of potential risks to
investors that may affect those 529 savings plans and ABLE
programs.\18\
---------------------------------------------------------------------------
\10\ Id.
\11\ Id.
\12\ Id.
\13\ Id.
\14\ Id.
\15\ Id.
\16\ Id.
\17\ Id.
\18\ Id.
---------------------------------------------------------------------------
In the Notice of Filing, the MSRB noted that an investment option
offered in a 529 savings plan may close to new investors, but allow
current account owners who have allocated account value to an
investment option to continue to invest in that ``closed'' investment
option.\19\ Alternatively, the MSRB stated, the 529 savings plan may
close an investment option completely.\20\ In either case, the MSRB
stated that the investment option data submitted for that investment
option on Form G-45 can be contrary to what the MSRB would have
expected for the investment option when compared to prior reporting
periods, and the MSRB may not be able to easily determine why such
variance occurred.\21\ The MSRB stated that, to address this issue, the
proposed rule change would add ``check-the-box'' items to Form G-45
that would alert the MSRB about whether an investment option has closed
to new investors, but allows current account owners to contribute
funds, or whether the investment option has closed to all
investors.\22\
---------------------------------------------------------------------------
\19\ Id.
\20\ Id.
\21\ Id.
\22\ Id.
---------------------------------------------------------------------------
The MSRB sought public comment about providing additional data
concerning the investment options offered in 529 savings plans and ABLE
programs.\23\ In response, the MSRB received the suggestion that the
MSRB no longer require that an underwriter submit three-year annualized
performance information for an investment option on Form G-45.\24\
---------------------------------------------------------------------------
\23\ Id.
\24\ Id.
---------------------------------------------------------------------------
Form G-45 requires that underwriters annually report (i) total
returns, including sales charges, (ii) total returns, excluding sales
charges, and (iii) benchmark return percent for specified periods,
including annualized or annual three-year percent. The MSRB noted that
at the time the MSRB approved Form G-45, the College Savings Plans
Network's (``CSPN'') voluntary disclosure principles that provide
recommendations to the state entities that establish and maintain 529
savings plans (the ``disclosure principles'') and which commenters
stated were the industry norm in other rulemakings, recommended that
such disclosure be made.\25\ However, the MSRB noted, since that time,
CSPN has updated the disclosure principles, and CSPN no longer
recommends that a 529 savings plan include three-year performance
information.\26\ Further, the MSRB noted that three-year annualized
performance information is not required by the SEC for mutual
funds.\27\
---------------------------------------------------------------------------
\25\ Id.
\26\ Id.
\27\ Id.
---------------------------------------------------------------------------
The MSRB has determined that Form G-45, even without the three-year
performance data, would continue to provide the MSRB with sufficient
performance information to assist the MSRB with its analysis of 529
savings plans and ABLE programs.\28\ Therefore, the MSRB stated that
because it believes that it will have sufficient performance
information, it is no longer an appropriate regulatory burden and
should be eliminated to avoid unnecessary costs.\29\
---------------------------------------------------------------------------
\28\ Id.
\29\ Id.
---------------------------------------------------------------------------
III. Discussion and Commission Findings
The Commission has carefully considered the proposed rule change.
The Commission finds that the proposed rule change is consistent with
the requirements of the Act and the rules and regulations thereunder
applicable to the MSRB.
In particular, the proposed rule change is consistent with Section
15B(b)(2)(C) of the Act.\30\ Section 15B(b)(2)(C) of the Act states
that the MSRB's rules shall be designed to prevent fraudulent and
manipulative acts and practices, to promote just and equitable
principles of trade, to foster cooperation and coordination with
persons engaged in regulating, clearing, settling, processing
information with respect to, and facilitating transactions in municipal
securities and municipal financial products, to remove impediments to
and perfect the mechanism of a free and open market in municipal
securities and municipal financial products, and, in general, to
protect investors, municipal entities, obligated persons, and the
public interest.\31\ The Commission believes the proposed rule change
is consistent with Section 15B(b)(2)(C) and necessary and appropriate
to help the MSRB receive complete and reliable information about 529
savings plans and ABLE programs. The MSRB can use the data elements
collected on Form G-45 to monitor these municipal fund securities and
detect potential investor harm. The Commission believes that, for that
data set to be complete and reliable, such data should include accurate
data about the fees and expenses associated with an investment in a 529
savings plan or an ABLE program, including the program management fee,
as provided in the proposed rule change. The Commission also believes
that such data should include accurate information about the investment
options available to existing and potential investors, as provided in
the proposed rule change. The Commission believes the proposed rule
change would help the MSRB to gather relevant data required to ensure
the MSRB's regulatory scheme is sufficient and/or to determine whether
additional rulemaking is necessary to protect investors and the public
interest. Further, the Commission believes that the deletion in the
proposed rule change of the requirement that 529 savings plans and ABLE
programs provide three-year annualized performance information would
better align Rule G-45 reporting requirements with industry reporting
standards, and therefore would foster cooperation and coordination with
persons engaged in regulating, clearing, settling, processing
information with respect to, and facilitating transactions in municipal
securities and municipal financial products.
---------------------------------------------------------------------------
\30\ 15 U.S.C. 78o-4(b)(2)(C).
\31\ 15 U.S.C. 78o-4(b)(2)(C).
---------------------------------------------------------------------------
The Commission believes that the proposed rule change would improve
the MSRB's ability to analyze the market for 529 savings plans and ABLE
programs as well as improve the MSRB's ability to evaluate trends and
differences among 529 savings plans and ABLE programs. Further, the
Commission believes that the MSRB, as well as other financial
regulators
[[Page 64909]]
charged with enforcing the MSRB's rules, can use the information
submitted on MSRB Form G-45 to enhance their understanding of, and
ability to monitor, 529 savings plans and ABLE programs.
In approving the proposed rule change, the Commission also has
considered the impact of the proposed rule change on efficiency,
competition, and capital formation.\32\ The Commission does not believe
that the proposed rule change will impose any burden on competition not
necessary or appropriate in furtherance of the purposes of the Act. The
clarification regarding the collection of the program management fee
information should reduce instances of the MSRB needing to have
underwriters resubmit corrected information that is currently required
to be submitted under Rule G-45. The Commission believes the deletion
of the Rule G-45 requirement to report three-year annualized
performance data for each investment option and any related benchmarks
will better align Rule G-45 reporting requirements with industry
reporting standards and will likely reduce Rule G-45 reporting burdens.
Additionally, with regard to the proposed requirement to report
investment option closing date information, the Commission understands
that this information is readily available to underwriters and the cost
of submission of such information would be minor. The Commission
believes that the additional information required to be submitted by
the proposed rule change would be submitted on an equal and non-
discriminatory basis, and the requirement would apply equally to all
dealers that serve as underwriters to 529 savings plans and/or ABLE
programs. Furthermore, the Commission believes that the potential
burdens created by the proposed rule change are likely to be outweighed
by the benefits.
---------------------------------------------------------------------------
\32\ 15 U.S.C. 78c(f).
---------------------------------------------------------------------------
For the reasons noted above, the Commission believes that the
proposed rule change is consistent with the Act.
IV. Conclusion
It is therefore ordered, pursuant to Section 19(b)(2) of the
Act,\33\ that the proposed rule change (SR-MSRB-2018-08) be, and hereby
is, approved.
---------------------------------------------------------------------------
\33\ 15 U.S.C. 78s(b)(2).
For the Commission, pursuant to delegated authority.\34\
---------------------------------------------------------------------------
\34\ 17 CFR 200.30-3(a)(12).
---------------------------------------------------------------------------
Eduardo A. Aleman,
Deputy Secretary.
[FR Doc. 2018-27281 Filed 12-17-18; 8:45 am]
BILLING CODE 8011-01-P