Blue Sky Compliance
Generally, the offering and sale of securities must comply with registration requirements or qualify for an exemption under the Federal Securities Act of 1933 ("Securities Act") and state securities laws. Due to the lack of consistency among state securities laws and the challenges they posed to capital-raising transactions, the National Securities Markets Improvement Act of 1996 ("NSMIA") was enacted into law on October 11, 1996.
The National Securities Markets Improvement Act of 1996 (NSMIA) brought significant changes by amending Section 18 of the Securities Act. This amendment aimed to preempt the state-level "blue sky" registration and review process for certain securities and offerings. Securities that fall under this preemption are referred to as "covered securities."
In addition, the NSMIA made amendments to Section 15 of the Exchange Act, which resulted in the preemption of state authority over various aspects related to brokers and dealers. This includes matters such as capital, custody, margin, financial responsibility, record-keeping, bonding, and financial or operational reporting requirements for brokers and dealers. The goal was to streamline and harmonize regulations at the federal level, reducing the burden of complying with a patchwork of state regulations for certain securities and broker-dealer activities.
When the National Securities Markets Improvement Act of 1996 (NSMIA) was enacted, the legislature intentionally did not provide an exhaustive list of specific securities subject to dual regulation by both states and the federal government. Instead, the NSMIA introduced the concept of "covered securities" that would be exempt from state-level registration and review.
However, the NSMIA did not include certain securities in its list of "covered securities," and examples of securities expressly excluded from the preemption provisions include:
Securities Traded on the Over-the-Counter (OTC) Market: Securities traded on the OTC market are not covered by the NSMIA preemption.
Registered Direct Public Offerings: Securities issued through registered direct public offerings are not treated as covered securities under the NSMIA.
Securities Issued in Rule 504 Offerings: Securities issued in offerings conducted under Rule 504 of Regulation D, which provides a limited exemption for certain small offerings, are not covered securities.
These exclusions mean that these specific types of securities remain subject to state-level regulation, and issuers must comply with the securities laws of the states in which they intend to offer and sell these securities. The NSMIA's intent was to strike a balance between federal and state regulatory authority while providing more consistency and efficiency in the regulation of securities offerings.
An Overview Of Blue Sky Laws
Securities issued in transactions that do not qualify as "covered securities" under the National Securities Markets Improvement Act of 1996 (NSMIA) must comply with state blue sky laws. Examples of transactions not covered by NSMIA include Regulation D Rule 504 offerings, intra-state offerings, and registered direct or initial public offerings.
Furthermore, even after the initial issuance, when these securities are subject to resale or secondary trading, they may still be subject to state blue sky laws. This means that individuals looking to resell or trade these securities must either rely on preemption provisions or comply with the specific blue sky laws of the states in which they intend to conduct secondary transactions.
In summary, securities issued in certain offerings that do not qualify as covered securities under NSMIA, as well as their subsequent resale or secondary trading, are subject to state blue sky laws. This underscores the importance of understanding and complying with both federal and state securities regulations to ensure legal and compliant transactions in the securities market.
State securities laws, often referred to as "blue sky laws," indeed require the registration or qualification of securities offerings, unless they fall under an available exemption. Each state has its own set of securities laws, and there are 54 U.S. jurisdictions, including all 50 states and four territories, each with different regulations.
While many states have adopted the Uniform Securities Act of 1956 (the "Uniform Act") or variations of it, state blue sky laws still exhibit significant differences. Even in states with similar statutes, interpretations, and enforcement priorities can vary significantly. Some key areas of divergence among states include:
Notice and Filing Requirements: States may have different requirements regarding the amount of fees, paperwork, questions asked, and the time needed for the review and approval of registrations.
Standards of Merit Review: States may differ in their standards of merit review, leading to varying comments and focuses on the same issuer.
Length of Comment Periods: The time taken for the review process can vary from days in some states to weeks or months in others.
Suitability Standards: States may have different suitability standards for certain securities offerings.
Notice Requirements for Exempt Offerings: Even under the Uniform Limited Offering Exemption, states may impose different notice requirements for exempt offerings.
Required Legends on Offering Materials: States may require specific legends on offering materials.
Disclosure Requirements: Disclosure requirements can vary, with some states requiring issuers to include different disclosure items or alter the language in certain phrases.
Required Forms: In addition to the standard Form D in exempt offerings, some states may require additional forms.
Treatment of Offerings of Asset-Backed Securities: States may have specific regulations for offerings of asset-backed securities.
Financial Statement Requirements: Some states may mandate audited financial statements, while others may not.
Most states offer some form of limited offering exemption based on factors such as the number of offerees or purchasers, the dollar amount of the offering, or a combination of these limitations. Common exemptions include private offering exemptions, often similar to federal Section 4(a)(2), exemptions for offerings limited to accredited investors, and exemptions similar to the NASAA's Uniform Limited Offering Exemption, akin to the federal Rule 506(b) exemption. Understanding and navigating these variations are essential for issuers and participants in the securities market to ensure compliance with state blue sky laws.
What Is The State Merit Review?
In over 40 states, a merit review approach is applied to state-registered offerings. Merit review involves a substantive evaluation of the issuer and the offering to ensure fairness and prevent fraudulent or inequitable offerings. Common topics considered during merit review include:
Discounted Stock Sales: Evaluation of sales, especially to insiders and promoters, conducted near the offering at significantly discounted prices.
Affiliate Transactions: Scrutiny of transactions with affiliates, including loans, which often need to be repaid before the offering and conducted on arm's length terms.
Debt Offerings: Assessment of debt offerings to ensure sufficient cash flows to cover servicing charges and payments. States may also require the establishment of a sinking fund or a trust indenture meeting specific requirements.
Impoundment of Offering Proceeds: Some states may require that the issuer agrees to impound offering proceeds.
Options and Warrants: States may request limits on the number of outstanding options or warrants and may dictate terms of exercisability. Limits may also be set on compensatory underwriter issuances.
Preferred Stock: Requirements for current and past net income to cover dividends or other obligations. If preferred stock is offered, redemption provisions and other investor-friendly rights may be mandated.
Promoter's Equity Investment: Some states may require a promoter's equity interest to be more than 10% of the post-offering equity, ensuring that the promoter is an affiliate and subject to resale restrictions.
Promotional Shares: States may require the escrow of shares or a reduction in the offering price if equity securities of a development-stage company have been issued to promoters and/or insiders for less than 85% of the offering price.
Selling Expenses and Selling Security Holders: States may limit costs to a percentage of the offering amount or require selling security holders to pay a pro-rata share of offering prices.
Unequal Voting Rights: Some states may prohibit or limit unequal voting rights.
Capitalization Requirements: Prohibitions on the issuance of any security except common equity for development-stage or less seasoned issuers.
Specifying Offering Price: States may require that the offering price be related to book value, earnings history, industry price/earnings multiples, or other parameters.
The North American Securities Administrators Association (NASAA) has published Statements of Policy regarding merit standards for specific industries, and many states use these policies as guidelines in their review process.
Blue Sky Laws And Secondary Trading
The National Securities Markets Improvement Act of 1996 (NSMIA) provides automatic preemption from state blue sky laws for the secondary trading of securities that are listed and traded on a national securities exchange. However, this preemption does not apply to all secondary trading. Specifically:
Automatic Preemption: Securities traded on a national securities exchange are automatically preempted from compliance with state blue sky laws when it comes to secondary trading. This means that states cannot impose additional requirements or regulations on the secondary trading of securities listed on a national exchange.
Preemption of Sections 4(a)(1) and 4(a)(4): NSMIA preempts Sections 4(a)(1) and 4(a)(4) of the Securities Act of 1933 in the context of secondary sales and broker transactions on behalf of customers. Section 4(a)(1) provides a registration exemption for transactions by any person other than an issuer, underwriter, or dealer. Section 4(a)(4) provides an exemption for broker-dealers when executing customers' unregistered sales of securities if, after reasonable inquiry, the broker-dealer is not aware of circumstances indicating that the customer would be violating the registration requirements of Section 5 of the Securities Act.
Role of Sections 4(a)(1) and 4(a)(4): While Section 4(a)(4) is not, by itself, an exemption from registration, it allows broker-dealers to process the sale of unregistered securities with a valid exemption from registration. Sections 4(a)(1) and 4(a)(4) generally work in conjunction, providing the basis for most secondary trading of securities on established trading markets.
In summary, the NSMIA's automatic preemption applies to the secondary trading of securities listed on national securities exchanges, and Sections 4(a)(1) and 4(a)(4) play a key role in facilitating this secondary trading by providing exemptions from registration requirements under certain conditions.
The secondary trading of securities for issuers not subject to SEC reporting requirements, including those voluntarily reporting transactions that do not qualify under Sections 4(a)(1) or 4(a)(4), must comply with state blue sky laws. Compliance with blue sky laws is crucial for broker-dealers and investment advisers, as they cannot provide advice, solicit, distribute research, or make recommendations to investors in states where the security is not blue sky eligible.
Complying with blue sky laws in all 54 jurisdictions can be challenging or even impossible. The lack of uniformity in these laws, especially regarding secondary trading, poses significant difficulties for non-reporting issuers to satisfy the diverse requirements across states. Some states, like Alabama, Kentucky, and Virginia, may lack exemptions for the secondary trading of non-reporting issuers' securities.
In a letter to the SEC in 2014, OTC Markets Group highlighted the issues related to blue sky laws, emphasizing the impact on secondary trading. The letter pointed out that restrictions on advice and research in certain jurisdictions leave investors uninformed, contradicting investor protection goals. The lack of uniformity in blue sky laws creates difficulties for non-reporting issuers to meet compliance requirements.
The letter from OTC Markets to the SEC also provided statistics on blue sky compliance by companies trading on the OTCQB and OTCQX. Among the reviewed companies, none complied with all jurisdictions, and only a small percentage complied with secondary trading requirements in specific states.
The challenges and lack of uniformity in blue sky laws underscore the need for further federal intervention or regulatory measures to streamline and simplify compliance processes for issuers engaged in secondary trading activities across multiple jurisdictions.
The Manual Exemption
The Manual Exemption serves as a state exemption for the secondary trading of securities and is applicable in 44 out of the 54 U.S. jurisdictions, including all 50 states and four territories. Each jurisdiction has its own set of securities laws, and the Manual Exemption provides a mechanism for issuers to engage in secondary trading activities without registering the securities.
Key points about the Manual Exemption include:
Recognition of Securities Manuals: The exemption is typically tied to the issuer having a profile published in a recognized securities manual, such as Mergent’s or Standard & Poor's. These manuals provide detailed information about the issuer, including specific enumerated information and financial statements.
Supplemental Information: Some states may require the filing of supplemental or additional information to qualify for the Manual Exemption. The nature and extent of supplemental information can vary from state to state.
State-by-State Variation: The Manual Exemption is subject to varying state statutory language, which can be complex and confusing. Each state may have its own requirements and nuances, making it challenging to determine whether a company qualifies for or has obtained the Manual Exemption.
Complexity in Determination: Determining whether a company has or is qualified for the Manual Exemption can be intricate due to the differences in state laws and the specific criteria set forth by each jurisdiction.
Alternative Exemptions: Issuers trading in states that do not have the Manual Exemption must explore alternative secondary trading exemptions to comply with state blue sky laws.
Given the complexity and variability in state laws, navigating the Manual Exemption and other state-specific exemptions requires careful consideration and often legal expertise to ensure compliance with the securities regulations of each jurisdiction where an issuer intends to engage in secondary trading.
NASAA Regulation: A Coordinated Review Process
The Regulation A Tier 1 coordinated review process is designed to facilitate the qualification of securities offerings in multiple states efficiently. Here are key aspects of this process:
Participating Jurisdictions: Of the 54 U.S. jurisdictions, 48 participate in the Regulation A Tier 1 coordinated review process. This process streamlines the qualification process for issuers looking to offer securities in multiple states.
Election to Complete Coordinated Review: An issuer elects to undergo the coordinated review process by completing Form CR-3b and submitting the application along with a copy of the completed Form 1-A and audited financial statements to Washington State by email.
Filing Fees: Filing fees are mailed separately to each of the states where the issuer desires to qualify.
Appointment of Lead Examiners: A lead merit examiner and a lead disclosure examiner are appointed to manage the review process. If the issuer is not applying in any state with merit review, only a lead disclosure examiner is appointed.
Review, Comment, and Amendment Process: The filing undergoes a review, comment, and amendment process, with the lead examiner issuing comment letters on behalf of all participating states.
Review Timeline: The review process has a relatively quick timeline. Within three days of filing, the issuer receives a written receipt and a letter detailing the review process. The lead examiner drafts a proposed comment letter within ten days of the filing confirmation.
Conference Calls: The lead examiner schedules conference calls to discuss the comments and how the issuer can address concerns. Examiners make themselves available throughout the process, fostering a cooperative relationship between the examiner and the issuer.
Comment Responses: Issuers' responses to comments are reviewed within five business days of receipt. If there are no comments, the offering can be cleared within 21 business days of filing.
Review Standard: The review standard is based on the NASAA Statements of Policy, covering various topics such as impoundment of proceeds, affiliated transactions, options and warrants, preferred stocks, promoter’s equity investment, promotional shares, use of profits, underwriting expenses, financial condition, and voting rights.
Overall, the coordinated review process aims to expedite the qualification of Regulation A Tier 1 offerings across multiple jurisdictions while ensuring compliance with relevant regulatory standards and investor protection measures.
NASAA Coordinated Filing Program For Form Ds Associated With Regulation D, Rule 506
The NASAA offers a coordinated multi-state filing system allowing issuers to submit a Form D for Regulation D, Rule 506 offerings and pay-related fees to participating state securities regulators. The system is called the Electronic Filing Depository and is currently only available for Rule 506 Form D filings. Not all states participate with the plan. Arizona, California, Connecticut, Delaware, Florida, Louisiana, Massachusetts, Michigan, Minnesota, New York, North Carolina, and Oregon are omitted. In addition to state filing fees, the NASAA charges a one-time $150 fee to use the system.