[Federal Register Volume 75, Number 250 (Thursday, December 30, 2010)]
[Notices]
[Pages 82420-82424]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-32904]
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SECURITIES AND EXCHANGE COMMISSION
[Release No. 34-63607; File No. SR-NASDAQ-2010-137]
Self-Regulatory Organizations, The NASDAQ Stock Market LLC; Order
Approving Proposed Rule Change To Amend IM-5101-2 To Provide Special
Purpose Acquisition Companies the Option To Hold a Tender Offer in Lieu
of a Shareholder Vote on a Proposed Acquisition and Other Changes to
the SPAC Listing Standards
December 23, 2010.
I. Introduction
On October 22, 2010, The NASDAQ Stock Market LLC (``Nasdaq'' or
``Exchange'') filed with the Securities and Exchange Commission
(``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 provide special purpose acquisition companies
(``SPACs'') an option to hold a tender offer in lieu of a shareholder
vote on a proposed acquisition and to make certain other changes to the
SPACs listing requirements as discussed below. The proposed rule change
was published in the Federal Register on November 9, 2010.\3\ The
Commission received three comment letters on the proposal.\4\ This
order approves the proposed rule change.
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\1\ 15 U.S.C. 78s(b)(1).
\2\ 17 CFR 240.19b-4.
\3\ See Securities Exchange Act Release No. 63239 (November 3,
2010), 75 FR 68846.
\4\ See Letters from Floyd I. Wittlin and Ann F. Chamberlain,
Bingham McCutchen LLP, dated November 22, 2010 (``Bingham Letter'');
David Alan Miller, Managing Partner and Jeffrey M. Gallant, Partner,
Graubard Miller, dated November 22, 2010 (``Graubard Letter''); and
Joel L. Rubinstein and Jonathan Rochwarger, McDermott Will & Emery,
dated November 30, 2010 (``McDermott Letter'').
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II. Description of the Proposal
As discussed in more detail below, the Exchange is proposing to
amend its listing rules to provide SPACs an option to hold a tender
offer in lieu of a shareholder vote on a proposed acquisition, to
require SPACs, trying to complete a business combination, that are not
subject to the Commission's proxy rules to conduct a tender offer
allowing shareholders to redeem shares for cash and provide information
similar to that provided under the Commission's proxy rules and to
amend the definition of public shareholder for purposes of the SPAC
conversion rights to also exclude beneficial holders of more than 10%
of the total shares outstanding, consistent with the Exchanges existing
definition of Public Holder.\5\
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\5\ See Nasdaq IM-5101-2(e) and Nasdaq Rule 5005(a)(34).
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SPACs are companies that raise capital in an initial public
offering (``IPO'') to enter into future undetermined business
combinations through mergers, capital stock exchanges, asset
acquisitions, stock purchases, reorganizations or other similar
business combinations with one or more operating businesses or assets.
In the IPO, SPACs typically sell units consisting of one share of
common stock and one or more warrants (or fraction of a warrant) to
purchase common stock. The units are separable at some point after the
IPO. Management of the SPAC typically receives a percentage of the
equity at the outset and may be required to purchase additional shares
in a private placement at the time of the IPO. Due to their unique
structure, SPACs do not have any prior financial history like operating
companies. In July 2008, the Commission approved Nasdaq rules to permit
the listing of securities of SPACs.\6\ Prior to that time, the Exchange
[[Page 82421]]
did not list securities of companies without a specific business plan
or that indicated that their plan was to engage in a merger or
acquisition with unidentified companies. In addition to requiring
securities of SPACs to meet the Exchange's initial listing standards,
Nasdaq's rules provided additional investor protection standards to
provide safeguards to shareholders who invest in SPAC securities.
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\6\ See Securities Exchange Act Release No. 58228 (July 25,
2008), 73 FR 44794 (July 31, 2008).
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Currently, Nasdaq's rules for listing securities of SPACs provide
at least 90% of the proceeds raised in the IPO and any concurrent sale
of equity securities must be placed in a trust account.\7\ Further,
Nasdaq's listing rules specify that within 36 months or such shorter
time period as specified by the SPAC, the SPAC must complete one or
more business combinations having an aggregative fair market value of
at least 80% of the value of the trust account.\8\ Until the SPAC has
completed a business combination of at least 80% of the trust account
value, the SPAC must, among other things, submit the business
combination to a shareholder vote.\9\ Any public shareholders who vote
against the business combination have a right to convert their shares
of common stock into a pro rata share of the aggregate amount then in
the trust account, if the business combination is approved and
consummated.\10\
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\7\ See Nasdaq IM-5101-2(a).
\8\ See Nasdaq IM-5101-2(b).
\9\ See Nasdaq IM-5101-2(d).
\10\ See Nasdaq IM-5101-2(e).
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Nasdaq proposes three changes to the SPAC shareholder approval
process. First, Nasdaq proposes to add an option for the SPAC to
conduct a tender offer instead of a shareholder vote. Nasdaq proposes
that until a SPAC has completed a business combination of at least 80%
of the trust account value, if a shareholder vote on the business
combination is not held for which the SPAC must file and furnish a
proxy or information statement subject to Regulation 14A or 14C under
the Act, in order to complete the business combination the SPAC must
provide all shareholders with the opportunity to redeem all their
shares for cash equal to their pro rata share of the aggregate amount
then in the deposit account pursuant to Rule 13e-4 and Regulation 14E
under the Act.\11\ The SPAC must file tender offer documents with the
Commission containing substantially the same information about the
business combination and the redemption rights as required under
Regulation 14A of the Act, which regulates proxy solicitations.
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\11\ See proposed Nasdaq IM-5101-2(e).
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Second, Nasdaq proposes to require that the shareholder vote
provisions currently in the rule requiring the business combination to
be approved by a majority of the shares voting at the meeting apply to
shareholder votes where the SPAC must file and furnish a proxy or
information statement subject to Regulation 14A or 14C under the Act in
advance of the shareholder meeting.\12\ This part of the Exchange's
proposal, taken together with the tender offer provisions discussed
above, in essence require a SPAC, not required by law to file and
furnish a proxy or information statement subject to Regulation 14A or
14C under the Act, to conduct a tender offer for shares in exchange for
a pro rata share of the cash held in deposit in the trust account. As
noted above, any issuer that elects to or is required to conduct a
tender offer must comply with Rule 13e-4 and Regulation 14E under that
Act, as well as file tender offer documents with the Commission
containing substantially the same financial and other information about
the business combination and redemption rights as would be required
under the federal proxy rules in Regulation 14A of the Act. This
provision will assure that investors will receive comparable
information about a proposed business combination irrespective of
whether the company is conducting a tender offer with or without a
vote, or a shareholder vote that requires the issuer to file and
furnish a proxy or information statement in compliance with the
Commission's proxy rules.
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\12\ See proposed Nasdaq IM-5101-2(d).
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Finally, Nasdaq proposes to exclude beneficial holders of more than
10% of the total outstanding SPAC shares from those public shareholders
entitled to receive conversion rights under paragraph (d) of IM-5101-2.
According to Nasdaq, when it originally adopted the SPAC rules, Nasdaq
intended to have the public shareholder exclusions closely mirror the
defined term ``Public Holders'' as well as exclude certain categories
specific to SPACs. However, the definition of public shareholder under
the SPAC rules did not exclude beneficial holders of more than 10% of
the total shares outstanding while the definition of Public Holders
excludes this group. Nasdaq is amending the SPAC rules to ensure
consistency between these two rules.\13\
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\13\ See proposed Nasdaq IM-5101-2(d).
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III. Summary of Comments
The Commission received three comments supporting the proposal. One
commenter stated that the proposal ``would represent a major step
toward elimination of the abuses that have plagued the shareholder
voting process relating to acquisitions by SPACS while continuing to
enable shareholders to make a fully informed voting decision on
proposed acquisitions by SPACs.'' \14\
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\14\ See Bingham Letter.
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While the three commenters support the proposal, they believed that
Nasdaq should propose to change its shareholder approval rule in Nasdaq
Rule 5635, which, among other things, require that a Nasdaq listed
issuer obtain shareholder approval to issue securities in connection
with an acquisition where the number of shares of common stock to be
issued is equal to or more than 20% of the number of shares outstanding
prior to the issuance.\15\ One commenter believed that ``adoption of
the proposed change to Rule IM-5101-2 will not be sufficient to
encourage SPACs to list on Nasdaq'' and anticipated that ``the proposed
rule change, standing alone, will have no practical effect.'' \16\ The
commenter stated that the value of the target for a SPAC is generally
greater than the amount in the SPAC's trust account, and thus, the SPAC
would need to issue additional shares at the time of the business
combination to raise capital.\17\ According to the commenter, the
greater number of shares issued, the lesser the dilutive impact of the
founders' shares and the warrants. The commenter argues that any
protection provided by Nasdaq's shareholder approval requirements is
unnecessary since under Nasdaq's proposal, shareholders not subject to
a vote are able to ``vote with their feet'' and get their investment
back through the tender offer process. Accordingly, the commenter urged
Nasdaq to exempt SPACs from Nasdaq's shareholder approval requirements
in Rule 5635.
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\15\ See Nasdaq Rule 5635(a).
\16\ See Bingham Letter.
\17\ See Bingham Letter.
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Another commenter stated that because ``SPACs are often unable to
determine with accuracy the amount of funds that will be required to
pay shareholders that ultimately elect to convert their shares into
cash, the funds held in the trust account are typically not used as
consideration to effect the acquisition transaction.'' \18\ As a
result, this commenter stated that SPACs often use stock as
consideration for the business combination and cash in the trust
account is used to redeem shareholders and possibly finance the
operations of the target. As a result, the securities issued to do a
business
[[Page 82422]]
combination almost always represent more than 20% of the outstanding
shares before the business combination. This commenter views the tender
offer proposal providing even greater participation for shareholders
then a vote alone under Nasdaq Rule 5635 since in the tender offer
situation shareholders can receive their money back and therefore,
believes that there should be an exception to the voting requirements
in Nasdaq's rules.
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\18\ See Graubard Letter.
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Another commenter noted that most ``SPAC business combination
transactions involve the issuance by the SPAC of a significant number
of shares, which typically triggers one or more shareholder approval
requirements of Rule 5635.'' \19\ This commenter believes that by
having the ability to redeem their shares and ``vote with their feet'',
shareholders do not need the additional protection of Nasdaq Rule 5635.
The commenter also notes that the shareholder vote requirement
currently in the SPAC rules has resulted in greenmail \20\ tactics that
the rule filing is meant to address, and that without an exception to
the shareholder approval requirements the potential for greenmail to
continue and other delays caused by the vote can narrow the pool of
quality acquisition targets for the SPAC which would be contrary to
shareholder interests.
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\19\ See McDermott Letter.
\20\ See Section IV, infra.
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Finally, two more additional comments were raised by the
commenters. First, the Bingham Letter suggests Nasdaq's rule be amended
to make clear that the SPAC founders' shares can be excluded from the
pro rata calculation used to determine the per share redemption price
in those cases where the sponsor has agreed not to exercise their
redemption rights.\21\ Second, the Graubard Letter states that Nasdaq
should be allowed to amend its rule to permit it to list securities of
SPACs with smaller size by eliminating the 2 year operating history in
one of its Capital Market initial listing requirements.\22\ In support
of this, the commenter notes that all the other protections for SPACs
in Nasdaq's rules would apply and that this would recognize the current
market environment for smaller offerings.
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\21\ See Bingham Letter.
\22\ See Graubard Letter.
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IV. Discussion and Findings
The Commission finds that the proposed rule change is consistent
with the requirements of the Act and the rules and regulations
thereunder applicable to a national securities exchange and, in
particular, the requirements of Section 6(b) of the Act and the rules
and regulations thereunder. Specifically, the Commission finds that the
proposal is consistent with Section 6(b)(5) of the Act,\23\ which
requires that an exchange have rules designed, among other things, to
promote just and equitable principles of trade, to remove impediments
to and perfect the mechanism of a free and open market and a national
market system, to protect investors and the public interest, and to not
permit unfair discrimination between customers, issuers, brokers, or
dealers.\24\
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\23\ 15 U.S.C. 78f(b)(5).
\24\ In approving this proposed rule change, the Commission
notes that it has considered the proposed rules' impact on
efficiency, competition, and capital formation. See 15 U.S.C.
78c(f).
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The development and enforcement of adequate standards governing the
initial and continued listing of securities on an exchange is an
activity of critical importance to financial markets and the investing
public. Listing standards, among other things, serve as a means for an
exchange to screen issuers and to provide listed status only to bona
fide companies that have or, in the case of an IPO, will have
sufficient public float, investor base, and trading interest to provide
the depth and liquidity necessary to promote fair and orderly markets.
Adequate standards are especially important given the expectations of
investors regarding exchange trading and the imprimatur of listing on a
particular market. Once a security has been approved for initial
listing, maintenance criteria allow an exchange to monitor the status
and trading characteristics of that issue to ensure that it continues
to meet the exchange's standards for market depth and liquidity so that
fair and orderly markets can be maintained.
As noted above, SPACs are companies that raise capital in IPOs,
with the purpose of purchasing operating companies or assets within a
certain time frame. Because of their unique structure, and the fact
that at the outset investors will not know the ultimate business of the
company similar to a blank check company, the Commission approved
Nasdaq listing standards for SPACs that were similar in some respects
to the investor protection measures contained in Rule 419 under the
Securities Act of 1933.\25\ One of the important investor protection
safeguards, as noted above, is the ability of public shareholders to
convert their shares for a pro rata share of the cash held in the trust
account if they vote against a business combination. In approving this
provision, the Commission noted that the conversion rights will help to
ensure that public shareholders who disagree with management's decision
with respect to a business combination have adequate remedies.\26\
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\25\ See 17 CFR 230.419. Rule 419 applies to blank check
companies issuing penny stock as defined under rule 3a51-1(a)(2) of
the Act. See 17 CFR 240.3a51-1(a)(2).
\26\ The Commission also noted, among other things, that the
requirement that a majority of the independent directors approve a
business combination should also help to ensure that a business
combination is entered into by the SPAC after a fair and impartial
decision. See IM-5101-2(c). This provision will continue to apply to
all SPAC business combinations whether approved through a
shareholder vote or conducted through a tender offer under the new
provisions being adopted in this order.
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As noted by Nasdaq in its rule filing, however, there have been
certain abuses as a result of the vote requirement. According to
Nasdaq, hedge funds and other activist investors would acquire an
interest in a SPAC and use their ability to vote against a proposed
acquisition as leverage to obtain additional consideration not
available to other shareholders. In its filing, Nasdaq refers to these
abuses as ``greenmail'' and is now proposing to add an option for the
SPAC to conduct a tender offer instead of a shareholder vote. As
described above, under the proposal the SPAC must provide all
shareholders with the opportunity to redeem all their shares for cash
equal to their pro rata share of the aggregate amount then in the
deposit account pursuant to Rule 13e-4 and Regulation 14E under the
Act.\27\ The SPAC must file tender offer documents with the Commission
containing substantially the same information about the business
combination and the redemption rights as required under the Federal
proxy solicitation rules. According to Nasdaq this is the same outcome
available to public shareholders who vote against the acquisition
pursuant to Nasdaq's existing rule and will allow shareholders to
``vote with their feet'' if they oppose a proposed acquisition by the
SPAC while preventing activist shareholders from denying shareholders
the benefit of the transaction.
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\27\ See proposed Nasdaq IM-5101-2(e).
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The Commission notes that the commenters are supportive of this
proposal and believe that the change should help to eliminate the
abuses that have occurred in relation to the voting process on
acquisitions by SPACs.\28\ Nasdaq's rule would retain the option to
[[Page 82423]]
hold a shareholder vote, and provide SPACs with a tender offer option,
so long as the tender offer is consistent with Federal securities laws.
Further, shareholders' right to redeem their shares would be preserved
under either scenario. The Commission further notes that irrespective
of whether a SPACs business combination is achieved through a tender
offer or shareholder vote, shareholders, under Nasdaq's rule, will
receive comparable financial and other information about the business
combination and the redemption rights.
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\28\ See Section III, supra. As noted above, while generally
supportive of the proposal, the commenters raised concerns that
Nasdaq's proposal does not go far enough.
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In summary, the Commission believes that shareholders who are not
in favor of a business combination should continue to have an adequate
remedy under Nasdaq's proposal if they disagree with management's
decision with respect to a business combination, and that the Nasdaq's
SPAC rules will continue to have safeguards to address investor
protection, while at the same time allowing the greenmail abuses noted
by Nasdaq to be addressed. Based on the above, the Commission finds
that this proposal is consistent with the requirements of the Act and
in particular the investor protection standards under Section 6(b)(5)
of the Act.
Nasdaq is also proposing to add language to existing provision IM-
5101-2(d) which concerns the shareholder voting requirements applicable
to business combinations. Under this change if a SPAC holds a
shareholder vote to approve a business combination, the provisions,
only apply where the SPAC must file and furnish a proxy or information
statement subject to Regulation 14A or 14C under the Act in advance of
the shareholder meeting. This change, viewed together with the changes
discussed above allowing a SPAC to do a business combination through a
tender offer rather than a shareholder vote, basically ensures that
certain SPACs that are not required under the federal securities laws
to comply with the Commission's proxy solicitation rules when
soliciting proxies, will have to follow the tender offer provisions
under Nasdaq's rules. Under this provision, the tender offer documents
are specifically required to contain substantially the same financial
and other information about the business combination and redemption
rights as would be required under the proxy rules in Regulation 14A of
the Act.\29\ The Commission notes that this proposal would clarify the
manner in which a shareholder vote is held and the information that
would be required by the SPAC to send to shareholders. Further, it
ensures that all investors will be receiving the same information about
a proposed business combination whether it is holding a vote and
required by law to follow the proxy rules or conducting a tender offer
under the conditions set forth in Nasdaq's rules. This provision also
does not preclude a SPAC that does not have to comply with the federal
proxy rules when soliciting proxies from having a shareholder vote, but
just ensures, through the tender offer process, that the SPAC will be
required to provide comparable information. Based on the above, the
Commission finds that this portion of the proposal is consistent with
the requirements of the Act, and in particular, the investor
protections requirements under Section 6(b)(5) of the Act.
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\29\ See proposed Nasdaq IM-5101-2(e).
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Finally, Nasdaq proposes to amend language in the SPAC rules to
also include beneficial holders of more than 10% of the total
outstanding SPAC shares to the groups of shareholders that are not
entitled to convert their shares on a pro rata basis for cash if they
vote against a business combination.\30\ The SPAC definition was
originally drafted, according to Nasdaq, to mirror the ``Public
Holder'' definition under Nasdaq rules in addition to excluding other
groups from having conversion rights such as the sponsors and founding
shareholders. The Commission notes that the proposed change in the
definition is consistent with Nasdaq's definition of ``Public
Holders,'' which also excludes from its definition ``the beneficial
holder of more than 10% of the total shares outstanding.'' \31\ This
will ensure consistency with the two rules and according to Nasdaq is
consistent with its original intent. Based on this and the existing
definition under Nasdaq's rules, the Commission, finds that this
proposal is consistent with the requirements of the Act.
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\30\ See proposed Nasdaq IM-5101-2(d).
\31\ See Nasdaq Rule 5005(a)(34).
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The commenters also urge the Commission to permit Nasdaq to change
its rules to exempt from the shareholder approval requirements in
Nasdaq Rule 5635, SPACs that issue 20% or more of their outstanding
shares to achieve an acquisition. As summarized above, the commenters
believe that the proposed changes allowing a tender offer option to
avoid ``greenmail'' situations will not be effective if there is a
separate shareholder approval requirement for issuances of 20% or more
of the SPACs common stock since most SPACs issue a large number of
shares when conducting a business combination. The Commission notes
that the instant proposal centers on the approval of shareholders with
respect to a business combination and the recourse a shareholder may
have should the shareholder disapprove the business combination.
Nasdaq's shareholder approval rules, on the other hand, are stand alone
requirements that are meant to address different issues such as
dilution of existing shareholders by the issuance of additional shares.
While the commenters have attempted to address some of the concerns
arguing that the shareholders don't need the further protection of a
vote since shareholders in a SPAC will be fully aware of their
redemption rights through disclosure and that dilution is not a concern
since the SPAC must complete business combinations with a target having
a fair market value of at least 80% of the value of the trust account,
the Commission is not convinced that these factors alone adequately
address the concerns underlying the shareholder approval rules.
In conclusion, the Commission notes that it has long recognized
that the Exchange's shareholder approval requirements provide important
protections to shareholders of listed companies from certain corporate
transactions. These protections are central to a shareholder owning
shares in a Nasdaq listed issuer. Based on this, the Commission is not
prepared to state that a shareholder vote is unnecessary in situations
where certain disclosures are made or there is only a possibility the
issuance may not cause dilution. Any such determination would raise
significant issues that would have to be fully considered by the
Commission and published for public comment, and may raise issues that
could potentially go beyond the listing of SPACs. The Commission
further notes that since the Exchange has not proposed to change the
shareholder approval rule at this time, that topic is not before the
Commission and does not need to be separately considered at this time.
Moreover, the commenters indicated that issuing additional shares is
not a requirement, but rather a typical business practice for SPACs.
The Commission notes, for example, that SPACs could seek out business
combinations with a fair market value consistent with the value of the
SPAC's trust account and possibly avoid the issuance of additional
shares to trigger Nasdaq Rule 5635.
As to the two remaining comments, that the Nasdaq rule language
should be amended to permit founders shares from being excluded from
the pro rate calculation and that the Nasdaq listing rules should be
amended to permit the
[[Page 82424]]
listing of smaller sized SPACs, the Commission notes that Nasdaq has
not proposed such changes. As to the suggestion on the language
concerning the pro rata calculation, the Commission notes that the
current language states that the pro rata amount is calculated based on
the aggregate amount in the deposit account. It is unclear if founders
share funds are typically deposited in the deposit account. If they
are, then it is possible a clarification may be helpful that the value
of the founders shares and founders warrants should not be used in
calculating the pro rata amount owed the shareholders in cases where
the founders agree not to exercise their redemption rights. Nasdaq may
wish to examine this issue further to see if a rule filing is necessary
to clarify the issue. Finally, as to the suggestion that Nasdaq's
initial listing standards be changed to accommodate the listing of
smaller sized SPACs, the Commission notes that such SPACS can currently
trade in the over-the-counter market. Any change to permit smaller
sized SPACs to trade on Nasdaq would have to be separately proposed and
considered and could only be approved if such a proposal was found to
be consistent with the requirements of the Act.
V. Conclusion
Based on the foregoing, the Commission finds the proposal is
consistent with the requirements of the Act. It is therefore ordered,
pursuant to Section 19(b)(2) of the Act,\32\ that the proposed rule
change (SR-NASDAQ-2010-137) is hereby approved.
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\32\ 15 U.S.C. 78s(b)(2).
For the Commission, by the Division of Trading and Markets,
pursuant to delegated authority.\33\
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\33\ 17 CFR. 200.30-3(a)(12).
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Florence E. Harmon,
Deputy Secretary.
[FR Doc. 2010-32904 Filed 12-29-10; 8:45 am]
BILLING CODE 8011-01-P