Proposed Rule2024-03436
Qualifying Venture Capital Funds Inflation Adjustment
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
February 21, 2024
Issuing agencies
Securities and Exchange Commission
Abstract
To implement the requirements of the Economic Growth, Regulatory Relief, and Consumer Protection Act of 2018 ("EGRRCPA"), the Securities and Exchange Commission ("Commission") is proposing a rule that would adjust for inflation the dollar threshold used in defining a "qualifying venture capital fund" under the Investment Company Act of 1940 ("Investment Company Act" or "Act"). The proposed rule also would allow the Commission to adjust for inflation this threshold amount by order every five years and specify how those adjustments would be determined.
Full Text
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<title>Federal Register, Volume 89 Issue 35 (Wednesday, February 21, 2024)</title>
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[Federal Register Volume 89, Number 35 (Wednesday, February 21, 2024)]
[Proposed Rules]
[Pages 12995-13000]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2024-03436]
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SECURITIES AND EXCHANGE COMMISSION
17 CFR PART 270
[Release No. IC-35129; File No. S7-2024-01]
RIN 3235-AN33
Qualifying Venture Capital Funds Inflation Adjustment
AGENCY: Securities and Exchange Commission.
ACTION: Proposed rule.
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SUMMARY: To implement the requirements of the Economic Growth,
[[Page 12996]]
Regulatory Relief, and Consumer Protection Act of 2018 (``EGRRCPA''),
the Securities and Exchange Commission (``Commission'') is proposing a
rule that would adjust for inflation the dollar threshold used in
defining a ``qualifying venture capital fund'' under the Investment
Company Act of 1940 (``Investment Company Act'' or ``Act''). The
proposed rule also would allow the Commission to adjust for inflation
this threshold amount by order every five years and specify how those
adjustments would be determined.
DATES: Comments should be submitted on or before March 22, 2024.
ADDRESSES: Comments may be submitted by any of the following methods:
Electronic Comments
<bullet> Use the Commission's internet comment form (<a href="https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment">https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment</a>); or
<bullet> Send an email to <a href="/cdn-cgi/l/email-protection#ddafa8b1b8f0beb2b0b0b8b3a9ae9daeb8bef3bab2ab"><span class="__cf_email__" data-cfemail="4331362f266e202c2e2e262d3730033026206d242c35">[email protected]</span></a>. Please include
File Number S7-2024-01 on the subject line.
Paper Comments
<bullet> Send paper comments to Secretary, Securities and Exchange
Commission, 100 F Street NE, Washington, DC 20549-1090.
All submissions should refer to File Number S7-2024-01. This file
number should be included on the subject line if email is used. To help
the Commission process and review your comments more efficiently,
please use only one method of submission. The Commission will post all
comments on the Commission's website (<a href="https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment">https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment</a>). Comments are also available for website
viewing and printing in the Commission's Public Reference Room, 100 F
Street NE, Washington, DC 20549, on official business days between the
hours of 10 a.m. and 3 p.m. Operating conditions may limit access to
the Commission's public reference room. Do not include personal
identifiable information in submissions; you should submit only
information that you wish to make available publicly. We may redact in
part or withhold entirely from publication submitted material that is
obscene or subject to copyright protection.
Studies, memoranda, or other substantive items may be added by the
Commission or staff to the comment file during this rulemaking. A
notification of the inclusion in the comment file of any such materials
will be made available on the Commission's website. To ensure direct
electronic receipt of such notifications, sign up through the ``Stay
Connected'' option at <a href="http://www.sec.gov">www.sec.gov</a> to receive notifications by email.
A summary of the proposal of not more than 100 words is posted on
the Commission's website (<a href="https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment">https://www.sec.gov/rules/2024/02/qvcf-inflation-adjustment</a>).
FOR FURTHER INFORMATION CONTACT: Michael Khalil, Senior Counsel, Brad
Gude, Branch Chief, or Brian McLaughlin Johnson, Assistant Director,
Investment Company Regulation Office, at (202) 551-6792, Division of
Investment Management, Securities and Exchange Commission, 100 F Street
NE, Washington, DC 20549-8549.
SUPPLEMENTARY INFORMATION:
I. Introduction
Section 3(a) of the Investment Company Act defines the term
``investment company'' for purposes of the Act, and section 3(c)(1)
provides certain exclusions from that definition.\1\ Section 504 of the
Economic Growth, Regulatory Relief, and Consumer Protection Act of 2018
(``EGRRCPA'') amended section 3(c)(1) of the Investment Company Act by
excluding ``qualifying venture capital funds'' from the investment
company definition.\2\ Section 504 of EGRRCPA also added new Investment
Company Act section 3(c)(1)(C), defining a ``qualifying venture capital
fund'' as ``a venture capital fund that has not more than $10,000,000
in aggregate capital contributions and uncalled committed capital.''
\3\ The statutory definition requires this $10,000,000 threshold ``be
indexed for inflation once every 5 years by the Commission, beginning
from a measurement made by the Commission on a date selected by the
Commission, rounded to the nearest $1,000,000.'' \4\
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\1\ See 15 U.S.C. 80a-3(a) and 80a-3(c)(1).
\2\ Public Law 115-174, section 504 (May 24, 2018); 15 U.S.C.
80a-3(c)(1). In order to meet this statutory exclusion, a qualifying
venture capital fund's outstanding securities cannot be beneficially
owned by more than 250 persons, and the fund must not be making, or
presently proposing to make, a public offering of its securities.
Id.
\3\ Public Law 115-174, section 504 (May 24, 2018); 15 U.S.C.
80a-3(c)(1)(C)(i). For purposes of section 3(c)(1), a ``venture
capital fund'' has the meaning given the term in 17 CFR 275.203(l)-
1. 15 U.S.C. 80a-3(c)(1)(C)(i).
\4\ Id.
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II. Discussion
Pursuant to section 3(c)(1)(C) of the Act and section 504 of
EGRRCPA, we are proposing a new rule under the Investment Company Act,
17 CFR 270.3c-7 (``rule 3c-7''), that would update for inflation the
dollar threshold for defining a qualifying venture capital fund under
section 3(c)(1)(C) of the Act. Proposed rule 3c-7 would also provide
that the Commission will subsequently issue orders every five years
making future inflation adjustments to the definition of qualifying
venture capital fund and specify how those adjustments would be
determined.
A. Current Inflation-Adjusted Definition of Qualifying Venture Capital
Fund
Proposed rule 3c-7(a) would state the current inflation-adjusted
dollar threshold for purposes of defining a qualifying venture capital
fund under section 3(c)(1)(C) of the Investment Company Act.\5\
Pursuant to EGRRCPA,\6\ proposed rule 3c-7(a) would use December 2023
as the current measurement date and adjust the current dollar threshold
for determining a qualifying venture capital fund under section
3(c)(1)(C) of the Act to $12,000,000 or, following a date five years
after the effective date of any final rule, the dollar amount specified
in the most recent order issued by the Commission in accordance with
the proposed rule and as published in the Federal Register.\7\
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\5\ Proposed rule 3c-7's definition of qualifying venture
capital fund is expressly limited to construing the term for
purposes of section 3(c)(1) of the Act. Under 12 CFR 351.10, the
term qualifying venture capital fund has a different meaning.
\6\ Public Law 115-174, section 504 (May 24, 2018); 15 U.S.C.
80a-3(c)(1) (defining a ``qualifying venture capital fund'' as ``a
venture capital fund that has not more than $10,000,000 in aggregate
capital contributions and uncalled committed capital'' and requiring
the Commission to adjust this dollar threshold for inflation once
every 5 years, beginning from a measurement made by the Commission
on a date selected by the Commission, rounded to the nearest
$1,000,000).
\7\ Such orders would also be available on the Commission's
website.
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This revised dollar threshold would take into account the effects
of inflation by reference to the historic and current levels of the
Personal Consumption Expenditures Chain-Type Price Index (``PCE
Index''),\8\ which is published by the Department of Commerce.\9\ The
PCE Index is often used as an indicator of
[[Page 12997]]
inflation in the personal sector of the U.S. economy.\10\ Additionally,
the Commission routinely has used the PCE Index in similar contexts in
Commission rules and provisions of the federal securities laws.\11\
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\8\ The revised dollar threshold would reflect inflation as of
Dec. 2023, and is rounded to the nearest $1,000,000 as required by
section 3(c)(1)(C) of the Act. The Dec. 2023 PCE Index was 121.421,
and the May 2018 PCE Index was 101.941. 121.421/101.941 x
$10,000,000 = $11,910,909; $11,910,909 rounded to the nearest
multiple of $1,000,000 = $12,000,0000.
\9\ The values of the PCE Index are available from the Bureau of
Economic Analysis, a bureau of the Department of Commerce. See
<a href="https://www.bea.gov">https://www.bea.gov</a>. The PCE Index measures the prices that people
living in the United States, or those buying on their behalf, pay
for goods and services. The PCE Index is known for capturing
inflation (or deflation) across a wide range of consumer expenses
and reflecting changes in consumer behavior. See <a href="https://www.bea.gov/data/personal-consumption-expenditures-price-index">https://www.bea.gov/data/personal-consumption-expenditures-price-index</a>.
\10\ See Clinton P. McCully, Brian C. Moyer & Kenneth J.
Stewart, Comparing the Consumer Price Index and the Personal
Consumption Expenditures Price Index, Survey of Current Bus., Nov.
2007, at 26 n.1 (PCE Index measures changes in ``prices paid for
goods and services by the personal sector in the U.S. national
income and product accounts'' and is primarily used for
macroeconomic analysis and forecasting). See also Federal Reserve
Board, Monetary Policy Report to the Congress, at n.1 (Feb. 17,
2000), available at <a href="https://www.federalreserve.gov/boarddocs/hh/2000/february/ReportSection1.htm#FN1">https://www.federalreserve.gov/boarddocs/hh/2000/february/ReportSection1.htm#FN1</a> (noting the reasons for using
the PCE Index rather than the consumer price index).
\11\ See, e.g., Investment Adviser Performance Compensation,
Investment Advisers Act Release No. 3372 (Feb. 15, 2012) [77 FR
10358, 10367 (Feb. 22, 2012)] (stating that the Commission had
proposed and was adopting the PCE Index in relation to the
definition of ``qualified clients'' because it is widely used as a
broad indicator of inflation in the economy, and because the
Commission has used it in other provisions of the federal securities
laws); Definitions of Terms and Exemptions Relating to the
``Broker'' Exceptions for Banks, Securities Exchange Act Release No.
56501 (Sept. 24, 2007) [72 FR 56514 (Oct. 3, 2007)] (using PCE Index
in adopting periodic inflation adjustments to the fixed-dollar
thresholds for both ``institutional customers'' and ``high net worth
customers'' under Rule 701 of Regulation R ``because it is a widely
used and broad indicator of inflation in the U.S. economy''); see
also Amendments to Form ADV, Investment Advisers Act Release No.
3060 (July 28, 2010) [75 FR 49234 (Aug. 12, 2010)] (using PCE Index
in increasing for inflation the threshold amount for prepayment of
advisory fees that triggers an adviser's duty to provide clients
with an audited balance sheet and the dollar threshold triggering
the exception to the delivery of brochures to advisory clients
receiving only impersonal advice). The Dodd-Frank Act also requires
the use of the PCE Index to calculate inflation adjustments for the
cash limit protection of each investor under the Securities Investor
Protection Act of 1970. See section 929H(a) of the Dodd-Frank Act,
15 U.S.C. 78fff-3.
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We are proposing to use the PCE Index to calculate inflation
adjustments for this rulemaking because the methodology and scope of
the PCE Index (which considers both urban and rural households and
expenditures made on their behalf by third parties) reflects a broad
sector of the U.S. economy.\12\
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\12\ See infra section III.
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We also considered other inflation adjustment calculations. For
example, the Commission has been required by statute to use the
Consumer Price Index for all Urban Consumers (``CPI-U'') \13\ to
conduct certain inflation adjustments.\14\ We calculated the rate of
inflation between May 2018 and December 2023 using both PCE Index and
CPI-U. While these indexes yielded slightly different rates of
inflation for the measured time period,\15\ after rounding to the
nearest $1,000,000 as required by EGRRCPA, both indexes yielded an
adjusted inflation threshold of $12,000,000, or an increase of
$2,000,000.\16\
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\13\ The CPI-U is the statistical metric developed by the U.S.
Bureau of Labor Statistics to monitor the change in the price of a
set list of products. The CPI-U represents changes in prices of all
goods and services purchased for consumption by urban households.
See Consumer Price Index available at <a href="https://www.bls.gov/cpi">https://www.bls.gov/cpi</a> (last
visited Feb. 7, 2024, 12:51 p.m.).
\14\ See, e.g., Inflation Adjustments and Other Technical
Amendments Under Titles I and III of the Jobs Act, Securities Act
Release No. 10332 (Mar. 31, 2017) [82 FR 17545 (Apr. 12, 2017)]
(citing the Jumpstart Our Business Startups Act (``JOBS Act''),
Public Law 112-106, 126 Stat. 306 (2012); Crowdfunding, Securities
Act Release No. 9974 (Oct. 30, 2015) [80 FR 71387 (Nov. 16, 2015)]
(citing the JOBS Act); 17 CFR 201.1001 (Adjustment of civil monetary
penalties); Adjustments to Civil Monetary Penalty Amounts,
Investment Company Act Release No. 22310 (Nov. 1, 1996) [61 FR 57773
(Nov. 8, 1996)] (citing the Debt Collection Improvement Act of 1996
(Pub. L. 104-134)).
\15\ Inflation as measured by PCE Index was 19.11%, while
inflation as measured by CPI-U was 23.15%. See footnote 8 (showing
PCE Index calculation). The May 2018 PCE Index was 101.941 and the
Dec. 2023 PCE Index was 121.421 ((121.421/101.941-1) x 100 =
19.11%). The May 2018 CPI-U was 250.792 and the Dec. 2023 CPI-U was
308.850 ((308.850/250.792-1) x 100 = 23.15%).
\16\ Before conducting the mandated rounding to the nearest
million, inflation as calculated according to the PCE Index would
have resulted in an increase of $1.911 million (i.e., a new
$11,911,000 threshold), while inflation as calculated according to
CPI-U would have resulted in an increase of $2.315 million (i.e., a
new $12,315,000 threshold).
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Notwithstanding that the PCE Index and CPI-U yield the same
inflation adjustment for this time-period after the rounding required
by EGRRCPA, we are proposing to use the PCE Index to calculate
inflation adjustments for this rulemaking because the PCE Index
reflects a broader scope of the U.S. economy and in light of the
additional considerations discussed below in the Economic Analysis.
B. Future Inflation Adjustments to the Definition of Qualifying Venture
Capital Fund
Proposed rule 3c-7(b) would provide a mechanism for future
inflation adjustments. Specifically, the Commission would issue an
order every five years adjusting for inflation the dollar threshold for
qualifying venture capital funds for purposes of section 3(c)(1) of the
Act.\17\ Proposed rule 3c-7(b) would also specify the PCE Index (or any
successor index thereto) as the inflation index used to calculate
future inflation adjustment of the dollar threshold in the rule.\18\ We
are proposing to use the PCE Index for these updates for the same
reasons we are proposing to use the PCE Index for the proposed initial
adjustment.\19\
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\17\ Proposed rule 3c-7 would provide that the Commission will
issue an order effective on or about five years after the effective
date of the rule, and approximately every five years thereafter,
adjusting for inflation the dollar threshold necessary to be a
qualifying venture capital fund for purposes of section 3(c)(1) of
the Act.
\18\ Proposed rule 3c-7 would provide that the dollar threshold
for qualifying venture capital funds will be adjusted for inflation
by (i) dividing the year-end value of the PCE Index for the calendar
year preceding the calendar year in which the order is being issued,
by the year-end value of the PCE Index for the calendar year 2018,
(ii) multiplying $10,000,000 (i.e., the original 2018 statutory
threshold for a qualifying venture capital fund) by that quotient,
and (iii) rounding the product to the nearest multiple of
$1,000,000.
\19\ See supra footnotes 8-12 and accompanying text and infra
section III.
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We request comment on proposed rule 3c-7.
(1) Is the proposed use of the PCE Index as a measure of inflation
appropriate? Is there another index (such as the CPI-U) or other
measure that would be more appropriate, and if so, why?
(2) The proposed rule would establish the original $10,000,000
threshold stated in EGRRCPA as the baseline for all future inflation
adjustments, as a consistent denominator for all future calculations.
Should we instead establish each future adjustment of the dollar amount
as a new baseline for the next calculation of the threshold amount? If
we were to adopt that approach, because EGRRCPA's amendments to section
3(c)(1)(C) of the Act requires that the revised threshold be rounded to
the nearest $1,000,000, could the establishment of a new baseline at
the rounded amount, each time the threshold is adjusted, result in the
underestimation or overestimation of the effects of inflation in
subsequent periods?
C. Effective Date
Because the rule would implement a required inflation adjustment to
an existing statutory exclusion from regulation, we are not proposing a
compliance period or extended effective date. Reliance on section
3(c)(1) is voluntary and a fund that newly met the definition of a
qualifying venture capital fund under rule 3c-7 could choose whether to
rely on the exclusion provided by section 3(c)(1) for such funds.
(3) Do commenters see a benefit to including a compliance period or
extended effective date for this proposed rule? If so, please describe.
III. Economic Analysis
The Commission is sensitive to the economic effects that could
result from proposed rule 3c-7. To comply with the inflation adjustment
required under
[[Page 12998]]
EGRRCPA, we are proposing rule 3c-7 to state the current threshold for
qualifying venture capital funds as indexed for inflation. This
proposed rule would allow the Commission to adjust the current
threshold in the definition of the term ``qualifying venture capital
fund'' from $10,000,000 to $12,000,000 in response to inflation as
measured by the PCE Index, and to perform future statutorily required
inflation adjustments using the same methodology.
For purposes of analyzing the economic effects of the proposed
rule, we use as our baseline the current venture capital fund market
and the current regulatory framework. To be excepted from registration
under section 3(c)(1), an issuer (including a venture capital fund)
must, among other things, either have not more than 100 beneficial
owners, or in the case of a qualifying venture capital fund, which
currently is defined as having no more than $10,000,000 in aggregate
capital contributions and uncalled committed capital, have no more than
250 beneficial owners.
An adviser to a venture capital fund that is either registered with
the Commission or is an ``exempt reporting adviser'' is required to
file reports on Form ADV.\20\ Based on this data, there are at least
23,759 venture capital funds, of which at least 14,822 are qualifying
venture capital funds as of December 2022.\21\ Of the qualifying
venture capital funds, 653 have more than 100 beneficial owners and so
could not use the section 3(c)(1) exclusion absent meeting the current
$10,000,000 asset threshold. Increasing the asset threshold in the
definition of the term ``qualifying venture capital fund'' will
increase the number of venture capital funds that can be qualifying
venture capital funds. Specifically, we estimate that there are
approximately three venture capital funds that are not currently
excluded from registration under section 3(c)(1) but that could be
defined as a qualifying venture capital fund if the threshold were
adjusted for inflation to $12,000,000 as proposed.\22\
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\20\ An adviser to a venture capital fund may or may not be
required to register with the Commission depending on its specific
facts and circumstances including the adviser's total regulatory
assets under management, the state of its principal office, and
whether it solely manages private funds or venture capital funds.
Many of the advisers to qualifying venture capital funds are
``exempt reporting advisers.'' See, e.g., Exemptions for Advisers to
Venture Capital Funds, Private Fund Advisers with Less Than $150
Million in Assets Under Management, and Foreign Private Advisers,
Investment Advisers Act Release No. 3222 (June 22, 2011) [76 FR
39645 (July 6, 2011)], at n.20 and accompanying text. Exempt
reporting advisers are not subject to the investment adviser
registration requirements under the Advisers Act. They are, however,
subject to certain other requirements under the Advisers Act and its
rules that also apply to registered advisers, including the
requirement to file reports on Form ADV and the Advisers Act's
antifraud provisions. See 17 U.S.C. 80b-3(l).
\21\ Based on Form ADV data between Jan. 1, 2022 and Dec. 31,
2022. These estimates encompass all private funds reported on Form
ADV that advisers indicated are venture capital funds. The estimate
of qualifying venture capital funds includes only these funds that
qualify for the exclusion from the definition of investment company
under section 3(c)(1) of the Act, have no more than 250 beneficial
owners, and report gross assets of no more than $10,000,000. These
numbers somewhat underestimate the total number of relevant funds.
First, gross assets may include assets that are not considered
aggregate capital contributions or uncalled capital commitments.
Second, with certain exceptions, advisers with less than $25 million
in regulatory assets under management are prohibited from
registering with the Commission and must instead register with state
regulators, with certain exceptions. Some states require these
advisers to file Form ADV under state registration, while other
states do not. Accordingly, these estimates do not capture funds
managed by advisers registered in states that do not require filing
Form ADV.
\22\ This estimate is based on the number of venture capital
funds reported on Form ADV between Jan. 1, 2022 and Dec. 31, 2022,
that have gross asset value between $10,000,000 and $12,000,000,
between 100 and 250 beneficial owners, and currently do not qualify
for an exception under section 3(c)(1).
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Incentives for funds to change their behaviors to stay within the
regulatory definition of a ``qualifying venture capital fund'' would
also strengthen or be mitigated depending on the specific circumstances
of the fund. If the threshold is increased to $12,000,000, a fund near
the current $10,000,000 threshold in aggregate capital contributions
and uncalled capital commitments, and a number of beneficial owners
above 100 but well below 250, would have additional room to raise
capital while remaining a qualifying venture capital fund. Accordingly,
it would have weaker incentives to prevent growth until its aggregate
capital contributions and uncalled capital commitments approach the new
threshold. Funds near an anticipated future adjusted threshold of
aggregate capital contributions and uncalled capital commitments could
have a greater incentive to maintain a balance below this future
threshold and maintain fewer than 250 beneficial owners.
While the immediate impacts described above are likely to be
meaningful for funds near the existing and future adjusted thresholds,
the overall effect of the proposed rule on the venture capital fund
market would be minimal; the inflation adjustment should maintain the
scope of funds that can be defined as a qualifying venture capital
fund, thereby preserving the economic effects associated with the
original provision.
Relatively few funds would be directly impacted by the proposed
change in the asset threshold. Accordingly, the proposed rule would not
substantively impact efficiency, competition, or capital formation in
the near term. In addition, over time, as future inflation adjustments
are made, the proposed rule would preserve the costs and benefits
associated with the original provision by maintaining a consistent
threshold standard. At the margin, the proposed rule may encourage
market competition by lowering barriers to entry for emerging venture
capital managers. Specifically, it could lower compliance costs for
eligible funds by exempting them from certain regulatory requirements
such as registration as an investment company and make it easier for
their managers to raise smaller amounts of capital from a larger number
of accredited investors.
Absent the periodic inflation adjustments that the proposed rule
would implement, the capital threshold for qualifying venture capital
funds would, over time, shrink in real terms. This would either result
in higher compliance costs for these types of funds--because these
funds would be newly required to register under the Act--or cause the
managers of these funds to change their strategies. For example, such
funds may decide to merge with other funds to spread out any fixed
costs from registration or stop operating these types of funds
altogether. They may also choose to limit the number of investors to be
under the conventional section 3(c)(1) limit of no more than 100
beneficial owners. Either of these shifts could limit the types of
funds available for investment, especially to accredited investors with
relatively fewer assets. For example, funds that merge or choose to
rely on the conventional section 3(c)(1) limit could become more likely
to seek larger investments from relatively fewer beneficial owners. It
could also impact smaller firms' ability to raise capital since these
firms disproportionately raise capital from smaller funds.\23\ Whether
managers changed their behavior or not, the number of qualifying
venture capital funds would decrease absent the periodic inflation
adjustment. At least some of the capital that would otherwise be
allocated to these funds would likely go to funds that are not excluded
from the Act and thus would
[[Page 12999]]
receive the investor protection benefits provided by the Act.
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\23\ See, e.g., Mark Humphery-Jenner, Private Equity Fund Size,
Investment Size, and Value Creation, 16 Rev. Fin. 799 (2012). In
Table IV, the authors find a correlation between the natural
logarithm of private equity fund size and the natural logarithm of
investment size of 0.56.
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Because the proposed rule would implement the statutory inflation
adjustments mandated by EGRRCPA, the only reasonable alternative to be
considered relates to the choice of inflation index to be used. As
discussed above, two indexes were considered--the PCE Index and CPI-U.
These measures differ because of different scopes and different
methodologies. CPI-U reflects only expenditures made directly by urban
households, whereas the PCE Index considers both urban and rural
households and considers expenditures made on their behalf by third
parties, such as employer-paid health insurance. The PCE Index also
better captures substitution effects since its category weights update
quarterly whereas those of the CPI-U update annually. Category weights
reflect the quantity of goods and services purchased in a particular
category. As some determinants of prices change, consumers will
substitute purchases between categories. Category weights that change
less frequently will less accurately capture these substitution
effects. The indexes' survey methodologies also differ: CPI-U relies on
two voluntary consumer surveys whereas the PCE Index incorporates
multiple surveys of businesses, some of which are government mandated
and carry fines for nonresponse. The scope of the PCE Index, covering
all American households, is more relevant to the affected parties of
this proposed rule than is the scope of the CPI-U, which only reflects
urban households.
We request comment on all aspects of the economic analysis of
proposed rule 3c-7. To the extent possible, we request that commenters
provide supporting data and analysis. In particular, we ask commenters
to consider the following questions:
(4) The proposed rule would require that the PCE Index or its
successor index be used to perform future inflation adjustments. Are
there additional factors beyond those discussed in this release that
should be considered regarding which index to use for these
adjustments?
(5) We estimate that three of the funds reported on Form ADV would
be directly impacted by the proposed change in threshold. This is the
number of reported venture capital funds that have gross asset value
between $10,000,000 and $12,000,000, between 100 and 250 beneficial
owners, and currently do not qualify for an exception under section
3(c)(1). Does this estimate capture the likely number of directly
affected funds? How could this estimate be improved?
(6) Are the costs and benefits of the proposed rule accurately
characterized?
(7) Are the effects on competition, efficiency, and capital
formation arising from the proposed rule accurately characterized?
IV. Paperwork Reduction Act
Proposed rule 3c-7 does not contain a ``collection of information''
requirement within the meaning of the Paperwork Reduction Act of 1995
(``PRA'') nor would it create any new filing, reporting, recordkeeping,
or disclosure reporting requirements.\24\ Accordingly, the PRA is not
applicable and we are not submitting the proposed rule to the Office of
Management and Budget for review under the PRA.\25\ We request comment
on whether our conclusion that there is no collection of information is
correct.
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\24\ 44 U.S.C. 3502(3).
\25\ 44 U.S.C. 3507(d) and 5 CFR 1320.11.
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V. Regulatory Flexibility Act Certification
The Regulatory Flexibility Act of 1980 (``RFA'') requires the
Commission, when issuing a rulemaking proposal, to prepare and make
available for public comment an initial regulatory flexibility analysis
(``IRFA'') that describes the impact of the proposed rule on small
entities,\26\ unless the Commission certifies that the rule, if
adopted, would not have a significant economic impact on a substantial
number of small entities.\27\ Pursuant to 5 U.S.C. 605(b), we hereby
certify that proposed new rule 3c-7 under the Investment Company Act
would not, if adopted, have a significant economic impact on a
substantial number of small entities. We are proposing new rule 3c-7
pursuant to the authority set forth in the Investment Company Act,
particularly sections 3 and 38 thereof [15 U.S.C. 80a et seq.], and the
Economic Growth, Regulatory Relief, and Consumer Protection Act of
2018, particularly section 504 [Pub. L. 115-174, 132 Stat. 1296].
Generally, for purposes of the Investment Company Act and the RFA, an
investment company is a small entity if, together with other investment
companies in the same group of related investment companies, it has net
assets of $50 million or less as of the end of its most recent fiscal
year.\28\
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\26\ 5 U.S.C. 603(a).
\27\ 5 U.S.C. 605(b).
\28\ 17 CFR 270.0-10(a).
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To qualify for a section 3(c)(1) exclusion, an issuer must (among
other things) have no more than 100 beneficial owners, or in the case
of a qualifying venture capital fund, no more than 250 beneficial
owners.\29\ Based on Form ADV filings, as of December 2022, there were
at least 14,822 funds that had met the definition of a qualifying
venture capital fund.\30\ Of those funds, approximately 653 had between
100 and 250 beneficial owners, such that they would have had to rely on
meeting the definition of a qualifying venture capital fund in order to
qualify for a section 3(c)(1) exclusion. A review of Form ADV filings
also suggest that there are approximately three venture capital funds
that are not currently relying on the exclusion in section 3(c)(1) but
that have between $10,0000 and $12,000,000 in aggregate capital
contributions and uncalled committed capital, and between 100 and 250
beneficial owners, such that they could meet the definition of a
qualifying venture capital fund under proposed rule 3c-7.\31\ We do not
believe that three out of 653 total venture capital funds with between
100 and 250 beneficial owners represent a ``substantial number'' of
small entities. For these reasons, the Commission believes that
proposed rule 3c-7 would not, if adopted, have a significant economic
impact on a substantial number of small entities.
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\29\ 15 U.S.C. 80a-3(c)(1).
\30\ See supra footnote 21.
\31\ See supra footnote 22.
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The Commission encourages written comments on the certification. We
solicit comment as to whether the proposed rule could have an effect on
small entities that has not been considered. We ask that commenters
describe the nature of any impact on small entities and provide
empirical data to support the extent of the impact.
VI. Consideration of Impact on the Economy
For purposes of the Small Business Regulatory Enforcement Fairness
Act of 1996 (``SBREFA''),\32\ the Commission must advise OMB whether a
proposed regulation constitutes a ``major'' rule. Under SBREFA, a rule
is considered ``major'' where, if adopted, it results in or is likely
to result in:
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\32\ Public Law 104-121, Title II, 110 Stat. 857 (1996)
(codified in various sections of 5 U.S.C., 15 U.S.C. and as a note
to 5 U.S.C. 601).
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<bullet> An annual effect on the economy of $100 million or more;
<bullet> A major increase in costs or prices for consumers or
individual industries; or
<bullet> Significant adverse effects on competition, investment, or
innovation.
We request comment on whether our proposal would be a ``major
rule'' for
[[Page 13000]]
purposes of SBREFA. We solicit comment and empirical data on:
<bullet> The potential effect on the U.S. economy on an annual
basis;
<bullet> Any potential increase in costs or prices for consumers or
individual industries; and
<bullet> Any potential effect on competition, investment, or
innovation.
Commenters are requested to provide empirical data and other
factual support for their views to the extent possible.
Statutory Authority
The new rule contained in this release is being proposed under the
authority set forth in the Investment Company Act, particularly
sections 3 and 38 thereof [15 U.S.C. 80a et seq.] and the Economic
Growth, Regulatory Relief, and Consumer Protection Act of 2018,
particularly section 504 thereof [115 Pub. L. 174, 132 Stat. 1296].
List of Subjects in 17 CFR Part 270
Investment companies, Securities.
For reasons set forth in the preamble, we are proposing to amend
title 17, chapter II of the Code of Federal Regulations as follows:
PART 270--RULES AND REGULATIONS, INVESTMENT COMPANY ACT OF 1940
0
1. The general authority citation for part 270 continues to read, in
part, as follows:
Authority: 15 U.S.C. 80a-1 et seq., 80a-34(d), 80a-37, 80a-39,
and Pub. L. 111-203, sec. 939A, 124 Stat. 1376 (2010), unless
otherwise noted.
* * * * *
0
2. Section 270.3c-7 is added to read as follows:
Sec. 270.3c-7 Inflation-adjusted definition of qualifying venture
capital fund.
(a) Inflation-adjusted definition of qualifying venture capital
fund. For purposes of section 3(c)(1)(C)(i) of the Act (15 U.S.C. 80a-
3(c)(1)(C)(i)), the term qualifying venture capital fund means a
venture capital fund (as that term is defined in 17 CFR 275.203(1)-1 or
any successor regulation) that has not more than $12,000,000 in
aggregate capital contributions and uncalled committed capital, or,
following [DATE FIVE YEARS AFTER EFFECTIVE DATE OF FINAL RULE], the
dollar amount specified in the most recent order issued by the
Commission in accordance with paragraph (b) of this section and as
published in the Federal Register.
(b) Future inflation adjustments. Pursuant to section 3(c)(1)(C)(i)
of the Act (15 U.S.C. 80a-3(c)(1)(C)(i)), the dollar amount specified
in paragraph (a) of this section shall be adjusted by order of the
Commission, issued on or about [DATE FIVE YEARS AFTER EFFECTIVE DATE OF
FINAL RULE] and approximately every five years thereafter. The adjusted
dollar amount established in such orders shall be computed by:
(1) Dividing the year-end value of the Personal Consumption
Expenditures Chain-Type Price Index (or any successor index thereto),
as published by the United States Department of Commerce, for the
calendar year preceding the calendar year in which the order is being
issued, by the year-end value of such index (or successor) for the
calendar year 2018; and
(2) Multiplying $10,000,000 times the quotient obtained in
paragraph (b)(1) of this section and rounding the product to the
nearest multiple of $1,000,000.
By the Commission.
Dated: February 14, 2024.
Vanessa A. Countryman,
Secretary.
[FR Doc. 2024-03436 Filed 2-20-24; 8:45 am]
BILLING CODE 8011-01-P
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