[Federal Register Volume 75, Number 40 (Tuesday, March 2, 2010)]
[Notices]
[Pages 9494-9513]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-4171]
[[Page 9493]]
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Part II
Securities and Exchange Commission
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Commission Statement in Support of Convergence and Global Accounting
Standards; Notice
Federal Register / Vol. 75, No. 40 / Tuesday, March 2, 2010 /
Notices
[[Page 9494]]
SECURITIES AND EXCHANGE COMMISSION
[Release Nos. 33-9109; 34-61578]
Commission Statement in Support of Convergence and Global
Accounting Standards
AGENCY: Securities and Exchange Commission.
ACTION: Commission statement.
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SUMMARY: The Securities and Exchange Commission (the ``Commission'') is
publishing this statement to provide an update regarding its
consideration of global accounting standards, including its continued
support for the convergence of U.S. Generally Accepted Accounting
Principles (``U.S. GAAP'') and International Financial Reporting
Standards (``IFRS'') and the implications of convergence with respect
to the Commission's ongoing consideration of incorporating IFRS into
the financial reporting system for U.S. issuers.
FOR FURTHER INFORMATION CONTACT: Eloise Quarles Bavaria, Special
Counsel, Office of International Corporate Finance, Division of
Corporation Finance, at (202) 551-3450, Jeffrey S. Cohan, Senior
Special Counsel, Office of the Chief Accountant, at (202) 551-5300, or
Nili Shah, Associate Chief Accountant, Office of the Chief Accountant,
at (202) 551-5300, U.S. Securities and Exchange Commission, 100 F
Street, NE., Washington, DC 20549.
SUPPLEMENTARY INFORMATION:
The Commission continues to believe that a single set of high-
quality globally accepted accounting standards will benefit U.S.
investors and that this goal is consistent with our mission of
protecting investors, maintaining fair, orderly, and efficient markets,
and facilitating capital formation. As a step toward this goal, we
continue to encourage the convergence of U.S. GAAP and IFRS and expect
that the differences will become fewer and narrower, over time, as a
result of the convergence project.
The Commission last addressed this topic in November 2008 when it
issued a proposed ``Roadmap'' for a possible path to a single set of
globally accepted accounting standards.\1\ The Proposed Roadmap
generated significant interest and thoughtful comment from investors,
issuers, accounting firms, regulators, and others regarding factors
that the Commission should consider as it moves forward in its
evaluation of whether and how to incorporate IFRS into the financial
reporting system for U.S. issuers. In addition to reaffirming the
Commission's strong commitment to a single set of global standards, the
recognition that IFRS is best-positioned to be able to serve the role
as that set of standards for the U.S. market, and the convergence
process ongoing between the Financial Accounting Standards Board
(``FASB'') and the International Accounting Standards Board (``IASB''),
this statement outlines certain of these factors that are of particular
importance to the Commission as it continues to evaluate IFRS through
2011.
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\1\ See Roadmap for the Potential Use of Financial Statements
Prepared in Accordance with International Financial Reporting
Standards by U.S. Issuers, Release No. 33-8982 (November 14, 2008)
[73 FR 70816 (November 21, 2008)] (``Proposed Roadmap'').
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The Commission has directed its staff to develop and execute a work
plan (the ``Work Plan'') to enhance both understanding of the
Commission's purpose and public transparency in this area.\2\ Execution
of the Work Plan, combined with the completion of the convergence
projects of the FASB and the IASB according to their current work plan,
will position the Commission in 2011 to make a determination regarding
incorporating IFRS into the financial reporting system for U.S.
issuers.
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\2\ The Work Plan is included as an appendix to this statement.
A summary of the key areas of the Work Plan is provided in section
IV of this statement.
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I. Overview
A. History of the Commission's Steps To Foster a Single Set of High-
Quality Globally Accepted Accounting Standards
The Commission has long promoted a single set of high-quality
globally accepted accounting standards.\3\ This position advances the
dual goals of improving financial reporting within the United States
and reducing country-by-country disparity in financial reporting. This,
in turn, would facilitate cross-border capital formation while also
helping to provide investors with the comparable and material
information they need to make informed decisions about investment
opportunities. In 1988, the Commission issued a policy statement
supporting the establishment of mutually acceptable international
accounting standards, provided that investor protections were not
compromised.\4\ The Commission cited the establishment of such
standards as a critical goal to reduce regulatory impediments to cross-
border capital transactions that result from disparate national
accounting standards.\5\
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\3\ See, e.g., Integrated Disclosure System for Foreign Private
Issuers, Release No. 33-6360 (November 20, 1981) [46 FR 58511
(December 2, 1981)].
\4\ See Regulation of the International Securities Markets,
Release No. 33-6807 (November 14, 1988) [53 FR 46963 (November 21,
1988)].
\5\ Id.
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In a 1997 report to Congress, the Commission encouraged the efforts
of the International Accounting Standards Committee to develop a core
set of accounting standards that could serve as a framework for
financial reporting in cross-border offerings. In that report, the
Commission also expressed its intent to remain active in the
development of those standards.\6\ These standards are now known as
IFRS, and the International Accounting Standards Committee was
succeeded by the IASB.
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\6\ See ``Pursuant to Section 509(5) of the National Securities
Markets Improvement Act of 1996 Report on Promoting Global
Preeminence of American Securities Markets'' (October 1997).
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In 2000, the Commission issued a concept release on international
accounting standards, seeking comment on the requisite elements to
encourage convergence toward a global financial reporting framework
that would not diminish the quality of domestic financial reporting.\7\
The 2000 Concept Release discussed generally the circumstances under
which the Commission would consider accepting financial statements from
foreign private issuers \8\ that are prepared using IFRS without a
reconciliation to U.S. GAAP.\9\
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\7\ See International Accounting Standards, No. 33-7801
(February 16, 2000) [65 FR 8896 (February 23, 2000)] (``2000 Concept
Release'').
\8\ The term ``foreign private issuer'' is defined in Exchange
Act Rule 3b-4(c) [17 CFR 240.3b-4(c)]. A foreign private issuer
means any foreign issuer other than a foreign government, except an
issuer that meets the following conditions: (1) more than 50 percent
of the issuer's outstanding voting securities are directly or
indirectly held of record by residents of the United States; and (2)
any of the following: (i) The majority of the executive officers or
directors are United States citizens or residents; (ii) more than 50
percent of the assets of the issuer are located in the United
States; or (iii) the business of the issuer is administered
principally in the United States.
\9\ In 2007, the Commission adopted rules permitting foreign
private issuers to file financial statements using IFRS as issued by
the IASB and to omit a reconciliation to U.S. GAAP. See Acceptance
from Foreign Private Issuers of Financial Statements Prepared in
Accordance with International Financial Reporting Standards without
Reconciliation to U.S. GAAP, Release No. 33-8879 (December 21, 2007)
[73 FR 986 (January 4, 2008)] (``2007 Adopting Release'').
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In the 2000 Concept Release, the Commission set out some
fundamental attributes for a high-quality set of accounting standards
that continue to be important today. These attributes require that the
standards (a) be of sufficiently high quality to support the
Commission's mission of protecting investors and facilitating capital
formation, and (b) be supported by an
[[Page 9495]]
infrastructure that ensures that the standards are established by
independent standard setters, and are rigorously and consistently
interpreted and applied.
After enactment of the Sarbanes-Oxley Act of 2002 (the ``Act''),
the Commission reaffirmed its recognition of the financial accounting
and reporting standards of the FASB as ``generally accepted'' for
purposes of the federal securities laws.\10\ One of the criteria that
Congress required the Commission to consider, when recognizing an
accounting standard setter, was whether that standard setter considers
``international convergence on high-quality accounting standards as
necessary or appropriate in the public interest and for the protection
of investors.'' \11\
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\10\ See Policy Statement: Reaffirming the Status of the FASB as
a Designated Private-Sector Standard Setter, Release No. 33-8221
(April 25, 2003) [68 FR 23333 (May 1, 2003)] (``2003 Policy
Statement'').
\11\ See Section 19 of the Securities Act of 1933, as amended
(15 U.S.C. 77a).
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Also as required by Congress in the Act, in 2003, our staff issued
a study on the adoption in the United States of a principles-based
accounting system.\12\ That study stated that global accounting
standardization through convergence would lead to the following
benefits:
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\12\ See ``Study Pursuant to Section 108(d) of the Sarbanes-
Oxley Act of 2002 on the Adoption by the United States Financial
Reporting System of a Principles-Based Accounting System'' (July 25,
2003) (``2003 Study'').
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Greater comparability for investors across firms and
industries on a global basis;
reduced listing costs for companies with multiple
listings;
increased competition among exchanges;
better global resource allocation and capital formation;
lowered cost of capital; and
a higher global economic growth rate.\13\
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\13\ Id.
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Beginning in 2002, the FASB and the IASB began a formal process to
converge U.S. GAAP and IFRS. In 2002, the FASB and the IASB announced
the issuance of a memorandum of understanding to collaborate on the
development of common, high-quality standards with the ultimate goal of
a single set of high-quality global accounting standards.\14\ In 2006,
the FASB and the IASB issued an updated memorandum of understanding
that set forth the scope of their joint work program to improve and
promote convergence of their accounting standards.\15\ The 2006
memorandum of understanding was updated in September 2008 to identify
targets for completion of convergence projects that the FASB and the
IASB believed were most critical.\16\ Throughout this process the
Commission has monitored, and will continue to monitor, the activities
of the FASB and the IASB and the progress in their efforts.
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\14\ See ``Memorandum of Understanding, `The Norwalk
Agreement,''' (September 18, 2002). (available at: http://www.fasb.org/news/memorandum.pdf)
\15\ See ``Memorandum of Understanding between the FASB and the
IASB'' (February 27, 2006). (available at: http://www.fasb.org/cs/ContentServer?c=Document_C&pagename=FASB%2FDocument_C%2FDocumentPage&cid=1176156245558)
\16\ See ``Completing the February 2006 Memorandum of
Understanding: A progress report and timetable for completion''
(September 2008). (available at: http://www.fasb.org/intl/MOU_09-11-08.pdf)
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In 2007, the Commission took two additional actions. First, it
issued a concept release on whether U.S. issuers should be allowed to
prepare financial statements in accordance with IFRS.\17\ Second, the
Commission adopted rules that allow foreign private issuers to make
filings with the Commission using financial statements prepared in
accordance with IFRS, as issued by the IASB, and without reconciliation
to U.S. GAAP.\18\
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\17\ See Allowing U.S. Issuers to Prepare Financial Statements
in Accordance with International Financial Reporting Standards,
Release No. 33-8831 (August 7, 2007) [72 FR 45600 (August 14, 2007)]
(``2007 Concept Release'').
\18\ See 2007 Adopting Release.
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Recently, the leaders of the Group of Twenty nations (``G-20'')
requested that international accounting bodies redouble their efforts
to achieve a single set of high-quality, global accounting standards
through their independent standard-setting processes and complete their
convergence project in June 2011.\19\ The FASB and IASB recently
reaffirmed their commitment to improving and converging their
respective accounting standards, and further committed to intensify
their efforts to meet a 2011 timeline.\20\ Chairman Mary L. Schapiro
also recently noted the Commission's commitment ``to the goal of a
global set of high-quality accounting standards.'' \21\
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\19\ See ``Leaders' Statement from the Pittsburgh Summit''
(September 24-25, 2009). (available at: https://www.g20.org/Documents/pittsburgh_summit_leaders_statement_250909.pdf)
\20\ See ``FASB and IASB Reaffirm Commitment to Memorandum of
Understanding: A Joint Statement of the FASB and IASB'' (November 5,
2009). (available at: http://www.iasb.org/NR/rdonlyres/D56F53A2-1FFE-425B-824B-9092E8A2D545/0/JointCommunique_October2009FINAL4.pdf)
\21\ See Speech by SEC Chairman Mary L. Schapiro: Remarks at
IOSCO Technical Committee Conference (October 8, 2009).
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B. The Proposed Roadmap
In November 2008, the Commission proposed a path to evaluating the
further role of IFRS in the U.S. capital markets.\22\ The Proposed
Roadmap sought comment on a number of suggested ``milestones'' that the
Commission might consider.
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\22\ See Proposed Roadmap. Unless otherwise noted, the phrase
``IFRS'' refers to ``IFRS as issued by the IASB.''
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The Proposed Roadmap contemplated that, subject to an assessment of
the milestones and other considerations, and after consideration of
public comment, the Commission could be in a position in 2011 to decide
whether to require the use of IFRS by U.S. issuers beginning in 2014,
potentially allowing earlier use by certain U.S. issuers beginning with
filings for fiscal years ending on or after December 15, 2009.\23\
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\23\ The Proposed Roadmap did not address the method the
Commission might use to mandate IFRS for U.S. issuers. See Id.
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II. Public Feedback on the Commission's Proposed Roadmap
We received over 200 comment letters on the Proposed Roadmap from a
wide variety of market participants, including those representing
investors, regulators, issuers, accounting, legal, and other
professions, academia, standard setters, and international
organizations.\24\ Commenters generally expressed widespread support
for the ultimate goal of having a single set of high-quality globally
accepted accounting standards.\25\ However, commenters differed in
their views about the approach in the Proposed Roadmap to achieve
further use of IFRS in the U.S. capital markets. Several commenters
asserted that there are many transition questions and issues arising
from the proposed approach that the Commission should consider
further.\26\
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\24\ Comment letters in response to the Proposed Roadmap are
available on the Commission's Web site (at http://www.sec.gov/comments/s7-27-08/s72708.shtml). Comments are also available for Web
site 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.
\25\ See, e.g., Abbott Inc. (``Abbott''), Air Products and
Chemicals, Inc., California Public Employees' Retirement System
(``CalPERS''), CFA Institute (``CFA''), Council of Institutional
Investors (``CII''), International Corporate Governance Network
(``ICGN''), Institute of International Finance, Investors Technical
Advisory Committee (``ITAC''), RiskMetrics Group, Inc.
(``RiskMetrics''), and Standard & Poor's Ratings Services (``S&P'').
\26\ See, e.g., AT&T Services, Inc., The Boeing Company
(``Boeing''), and Chevron Corporation.
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A. Potential for High-Quality Globally Accepted Accounting Standards
There was widespread support across all commenters for a single set
of high-
[[Page 9496]]
quality globally accepted accounting standards.\27\ While commenters
offered differing perspectives, some commenters identified the
following potential benefits from a single set of global accounting
standards:
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\27\ See, e.g., Accretive Solutions, Alcoa Inc. (``Alcoa''),
CalPERS, Center for Audit Quality, Cleary Gottlieb Steen & Hamilton
LLP, General Mills, Inc., Institute of Management Accountants, State
of New York Banking Department, PricewaterhouseCoopers LLP
(``PwC''), and RiskMetrics,
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Improved financial statement comparability among companies
worldwide;
streamlined accounting processes for multinational
companies; and
easier access to foreign capital and improved liquidity,
leading to a reduced cost of capital.\28\
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\28\ See, e.g., Liberty Global and Graybar Electric Company,
Inc. (``Graybar'') comment letters for lists of potential benefits
from the use of a single set of global standards.
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The potential benefits identified by commenters generally are
consistent with the perceived benefits discussed in the staff's 2003
Study. Improved comparability was the most frequently cited potential
benefit from the use of a single set of global accounting
standards.\29\ However, some commenters, while expressing support for
the concept of a single set of global accounting standards, expressed
reservations regarding whether the adoption of global accounting
standards is a feasible objective.\30\ Some of these concerns are
discussed below.
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\29\ See, e.g., American Institute of Certified Public
Accountants (``AICPA''), Federation of European Accountants
(``FEE''), and Institute of Chartered Accountants of Scotland.
\30\ See, e.g., Liberty Global, The Lubrizol Corporation
(``Lubrizol''), National Association of State Boards of Accountancy
(``NASBA''), and Reznick Group, P.C.
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B. The Proposed Roadmap
Opinions regarding the approach outlined in the Proposed Roadmap
diverged. The key areas of concern expressed by the commenters include
the readiness of IFRS to serve as the set of accounting standards for
U.S. issuers, the need for continued convergence of IFRS and U.S. GAAP,
and the timeframe set for, and potential costs of, transitioning U.S.
GAAP to IFRS.\31\
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\31\ See, e.g., Boeing, FPL Group, Inc., and Kohl's Corporation.
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Opinions regarding the potential of IFRS, in its current state, to
serve as the single set of global accounting standards varied broadly
across and within categories of commenters. While larger, multinational
firms and commenters from the accounting profession generally saw IFRS
as best positioned for the role of the single set of global accounting
standards,\32\ a number of other commenters expressed concerns
regarding the capability of these standards, in their current state, to
serve that role.\33\
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\32\ See, e.g., AICPA, Alcoa, Association of Chartered Certified
Accountants, California Society of Certified Public Accountants,
Center for Audit Quality, IBM Corporation, and The Ohio Society of
CPAs.
\33\ See, e.g., Aerospace Industries Association and Committee
of Annuity Insurers (``CAI'').
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Many investors and investor groups that addressed this issue
expressed the view that it was too early to judge the potential of IFRS
to serve as the single set of global accounting standards.\34\
Commenters who expressed this view noted that:
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\34\ See, e.g., CalPERS, CII, ICGN, ITAC, and S&P.
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IFRS is not sufficiently developed or applied in practice
to be adopted as a single set of global standards (e.g., either IFRS
lacks guidance in certain significant areas, or the guidance it does
contain appears to or may allow too much latitude to achieve more
comparable financial reporting than U.S. GAAP);
jurisdictional variants in the application of IFRS pose a
significant challenge to the adoption of IFRS as a truly global
reporting model; and
the achievement of a genuine common global financial
reporting model would require consistent application, auditing, and
enforcement across countries.\35\
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\35\ See, e.g., American Insurance Association, CAI, Center for
Capital Markets Competitiveness, Dominion Resources Services, Hot
Topic Inc., McDonald's Corporation (``McDonald's''), and National
Association of Real Estate Investment Trusts.
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In addition, some commenters expressed concern that a ``business
case'' has not been sufficiently demonstrated to support moving from
existing U.S. GAAP directly to IFRS. These commenters contend that
existing U.S. GAAP is already widely accepted worldwide and is seen as
high-quality, and that not all U.S. companies compete for capital
globally or issue securities outside the U.S. market, so the primary
effect of the Proposed Roadmap would be increased costs in return for
minimal and largely conceptual benefits.\36\ Others noted that
significant challenges likely would arise in having an international
organization as the ultimate body that would set standards for U.S.
issuers.\37\ Commenters in this area questioned whether this would be a
wise policy, given the Commission's long-standing statutory role of
setting and overseeing financial reporting standards for the United
States.\38\
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\36\ See, e.g., Darden Restaurant, Inc. (``Darden''),
McDonald's, and PPL Corporation (``PPL'').
\37\ See, e.g., CMS Energy Corporation and Consumers Energy
Company, Darden, Lubrizol, and McDonald's.
\38\ See, e.g., Darden, Intel Corporation (``Intel''), and
MetLife, Inc.
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In contrast to the varying perspectives on the potential use of
IFRS to serve as the common set of global accounting standards,
commenters were more consistent with respect to their concerns on the
approach and schedule outlined in the Proposed Roadmap. Many
commenters, particularly investors, believed that the Commission should
articulate how it intended to mandate the use of IFRS in the United
States before they would be willing to support such a move.\39\ Also,
many commenters believed the proposal either underestimated or did not
adequately address the many critical issues and costs (both
quantitative and qualitative) that would be involved in meeting the
transition timing suggested in the Proposed Roadmap. For example, while
many commenters believed the proposal identified in concept many of the
factors to be considered in choosing a particular path forward for the
U.S. capital markets, they also believed that it did not sufficiently
articulate a plan for identifying and addressing the specific issues
and the criteria against which they would be judged.\40\ As a result,
several commenters recommended that the Commission further develop a
plan to determine the appropriate path forward, including the
affirmative actions and specific steps that need to be taken.\41\
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\39\ See, e.g., CalPERS and S&P.
\40\ See, e.g., CFA, CII, JPMorgan Chase, and The New York State
Society of Certified Public Accountants.
\41\ See, e.g., CalPERS, ICGN, Intel, ITAC, Northrop Grumman
Corporation (``Northrop Grumman''), and S&P.
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III. Approach Forward for the U.S. Capital Markets
We continue to support the objective of financial reporting in the
global markets pursuant to a single set of high-quality globally
accepted accounting standards. As evidenced by the recent economic
crisis, the activities and interests of investors, companies, and
markets are increasingly global. This continued globalization of our
markets reinforces the idea that the pursuit of this goal is consistent
with our mission of protecting investors, maintaining fair, orderly,
and efficient markets, and facilitating capital formation.
Since the second half of 2007, the world economy has experienced
economic conditions not seen since the Great Depression. What at one
time was viewed by some as an isolated crisis in the subprime mortgage
sector spread to
[[Page 9497]]
the global economy as a whole. The current environment has highlighted
certain of the existing differences in the accounting standards used in
the major capital markets. Some believe that these differences in
accounting standards contributed to difficulty in the ability of
investors and other stakeholders to assess the financial results of
companies operating and competing in the global markets in determining
how to allocate capital.\42\ As part of the G-20's efforts to address
the economic crisis, it specifically requested that accounting bodies
redouble their efforts to achieve a single set of high-quality, global
accounting standards through their independent standard-setting
processes and complete their convergence project by 2011.\43\
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\42\ See ``Report of the Financial Crisis Advisory Group'' (July
28, 2009). (available at: http://www.iasb.org/NR/rdonlyres/2D2862CC-BEFC-4A1E-8DDC-F159B78C2AA6/0/FCAGReportJuly2009.pdf)
\43\ See ``Leaders' Statement from the Pittsburgh Summit''
(September 24-25, 2009). (available at: http://www.g20.org/Documents/pittsburgh_summit_leaders_statement_250909.pdf)
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The Commission's statutory mandate with respect to determining the
accounting standards to be used in the United States requires it to
promote full, fair, and reliable disclosure for the protection of U.S.
investors.\44\ The U.S. capital markets are among the largest and most
liquid in the world. We believe that the acceptance, comprehensiveness,
reliability, and enforceability of U.S. GAAP are important reasons for
the pre-eminence of our capital markets. U.S. GAAP is a well-
established basis for financial reporting that is applied by all U.S.
issuers, many foreign companies and many U.S. private companies.
Preparers and users of financial statements, such as investors and
analysts, are familiar with U.S. GAAP. Thus, we acknowledge the
magnitude of the task that would be involved to incorporate IFRS into
our financial reporting environment for U.S. issuers. It is therefore
important that, before we mandate any such change, careful
consideration and deliberation, as well as a sufficient transition time
for users and preparers of financial statements, occur to assure that
such a change is in the best interest of U.S. investors and markets.
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\44\ See 2003 Policy Statement.
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We have considered carefully the input contained in the comment
letters we received. We believe that a more comprehensive work plan is
necessary to lay out transparently the work that must be done to
support our decision on the appropriate course to incorporate IFRS into
the U.S. financial reporting system for U.S. issuers, including the
scope, timeframe, and methodology for any such transition. Toward this
end, we have directed the staff of the Office of the Chief Accountant,
with appropriate consultation with other Divisions and Offices of the
Commission, to develop and carry out the Work Plan. The Work Plan
accompanies this statement as an appendix.
The Work Plan sets forth specific areas and factors for the staff
to consider before potentially transitioning our current financial
reporting system for U.S. issuers to a system incorporating IFRS.
Specifically, the Work Plan addresses areas of concern that were
highlighted by commenters, including:
Sufficient development and application of IFRS for the
U.S. domestic reporting system;
The independence of standard setting for the benefit of
investors;
Investor understanding and education regarding IFRS;
Examination of the U.S. regulatory environment that would
be affected by a change in accounting standards;
The impact on issuers, both large and small, including
changes to accounting systems, changes to contractual arrangements,
corporate governance considerations, and litigation contingencies; and
Human capital readiness.
The staff will provide public progress reports on the Work Plan
beginning no later than October 2010 and frequently thereafter until
the work is complete. The Work Plan is designed to provide the
Commission the information it needs to evaluate the implications of
incorporating IFRS into the U.S. domestic reporting system. Following
successful completion of the Work Plan and the FASB-IASB convergence
projects according to their current work plan, the Commission will be
in a position in 2011 to determine whether to incorporate IFRS into the
U.S. domestic reporting system.
Commenters on the Proposed Roadmap expressed a view that U.S.
issuers would need approximately four to five years to successfully
implement a change in their financial reporting systems to incorporate
IFRS.\45\ Therefore, assuming that the Commission determines in 2011 to
incorporate IFRS into the U.S. domestic reporting system, we believe
that the first time U.S. issuers would report under such a system would
be approximately 2015 or 2016. We have asked the staff as part of the
Work Plan to further evaluate this timeline.
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\45\ See, e.g., Boeing, Northrop Grumman, PepsiCo, Inc., and tw
telecom inc.
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IV. Summary of the Key Areas of the Work Plan
The Commission staff will analyze each of the six areas identified
in its Work Plan, as discussed further below. The first two areas
consider characteristics of IFRS and its standard setting that would be
the most relevant to a future determination by the Commission regarding
whether to incorporate IFRS into the financial reporting system for
U.S. issuers. The remaining four areas relate to transitional
considerations that will enable the Staff to better evaluate the scope
of, timing of, and approach to changes that would be necessary to
effectively incorporate IFRS into the financial reporting system for
U.S. issuers, should the Commission determine in the future to do so.
While an ultimate determination of any specific methods (e.g.,
convergence, standard-by-standard adoption, wholesale adoption) or
dates for the possible incorporation of IFRS into the financial
reporting system for U.S. issuers is beyond the scope of the Work Plan,
the information obtained through the Work Plan will facilitate future
Commission consideration of those matters. The Work Plan provides
additional detail about the analysis that the staff will perform in
each of these six areas.
A. Sufficient Development and Application of IFRS for the U.S. Domestic
Reporting System
As described in the 2000 Concept Release, the Commission's efforts
to support a globally accepted high-quality financial reporting
framework have been guided by its mission of protecting investors,
maintaining fair, orderly, and efficient capital markets, and
facilitating capital formation.\46\ A necessary element for a set of
global accounting standards to meet these objectives is that they must
be high quality, consisting of a ``comprehensive set of neutral
principles that require consistent, comparable, relevant and reliable
information that is useful for investors, lenders and creditors, and
others who make capital allocation decisions.'' \47\ The Commission
continues to believe that high-quality global accounting standards
``must be supported by an infrastructure that ensures that the
standards are rigorously
[[Page 9498]]
interpreted and applied'' \48\ both within and outside the United
States.
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\46\ See 2000 Concept Release.
\47\ See 2000 Concept Release, at II.A.
\48\ Id. See also 2007 Concept Release.
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The increasing acceptance and use of IFRS in major capital markets
throughout the world over the past several years, and its anticipated
use in other countries in the near future, demonstrate that IFRS has
the greatest potential to provide a common platform for capital markets
regulators. The IASB has made significant progress in developing high-
quality accounting standards, as noted in the 2007 Adopting
Release.\49\ However, as the Commission noted in the Proposed Roadmap,
there are areas where completion of the IASB's standard-setting
initiatives, including those included in its convergence agenda with
the FASB, should improve and further develop IFRS.\50\ The successful
completion of these efforts would be a significant accomplishment
toward improving financial reporting for investors worldwide. In
addition, the Commission in the Proposed Roadmap stated that, in
further considering IFRS, it would ``consider whether those accounting
standards are of high quality and sufficiently comprehensive.'' \51\ As
part of the staff's efforts under the Work Plan, the staff will
evaluate the IASB's efforts to improve IFRS, including through those
joint IASB-FASB projects scheduled to be completed in 2011.
---------------------------------------------------------------------------
\49\ See 2007 Adopting Release.
\50\ See Proposed Roadmap.
\51\ Id.
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1. Comprehensiveness
In the Proposed Roadmap, the Commission stated that ``IFRS is not
as developed as U.S. GAAP in certain areas.'' \52\ For example, IFRS
does not provide broad guidance for certain topical areas, such as
accounting for certain common control transactions, recapitalization
transactions, reorganizations, and acquisitions of minority shares not
resulting in a change of control and similar transactions.\53\ IFRS
also lacks guidance for certain broad industries, including those the
IASB is currently developing related to utilities, insurance,
extractive activities, and investment companies.\54\ As part of the
Work Plan, the staff will assess the overall level of comprehensiveness
of IFRS.
---------------------------------------------------------------------------
\52\ Id.
\53\ Id.
\54\ Id.
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2. Auditability and Enforceability
The Proposed Roadmap noted the challenges that can exist with
IFRS's less prescriptive guidance. Commenters on the Proposed Roadmap
raised several concerns regarding the auditability and enforceability
of IFRS, including the risk of opportunistic accounting; diminished
comparability; and the potential for accounting conclusions of
preparers to be unfairly criticized by auditors, regulators, and
investors.
The auditability and enforceability of a set of accounting
standards are essential aspects of investor protection. Under the Work
Plan, the staff will analyze factors that may influence the
auditability and enforceability of financial statements prepared under
IFRS.
3. Consistent and High-Quality Application
The Commission has based its continued strong support for a single
set of high-quality globally accepted accounting standards, including
the consideration of incorporating IFRS into its financial reporting
system, on the premise that U.S. investors ultimately will benefit from
the comparability of financial information from issuers on a worldwide
basis. Consistent and high-quality implementation is necessary for
investors to benefit from a set of high-quality global accounting
standards.\55\ To assess the consistent and faithful application of
IFRS, the staff will analyze the factors that may influence the degree
of comparability of financial statements prepared under IFRS on a
global basis and their consequences in practice. The staff also will
assess the relative effect on comparability of financial reporting in
the United States, if IFRS were incorporated into the financial
reporting system for U.S. issuers.
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\55\ See, e.g., comment letters from Maverick Capital, CII, and
CFA on the proposing release: Acceptance From Foreign Private
Issuers of Financial Statements Prepared in Accordance with
International Financial Reporting Standards without Reconciliation
to U.S. GAAP, Release No. 33-8818 (July 2, 2007) [72 FR 37962 (July
11, 2007)].
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B. The Independence of Standard Setting for the Benefit of Investors
Another important element for a set of high-quality global
accounting standards is whether the accounting standard setter's
funding and governance structure support the independent development of
accounting standards for the ultimate benefit of investors. This is an
area of significant concern to the investors and investor groups that
commented on the Proposed Roadmap.\56\ The Work Plan includes an
ongoing review of the functioning of the IASB's governance structure
and developments to secure a stable, broad-based source of funding.\57\
This review will help the staff assess whether these factors promote
standard setting that is accountable, independent, and free from undue
influence that could affect the ability of U.S. investors to receive
full, fair, and reliable disclosure. Full, fair, and reliable
disclosure is essential to facilitate the meaningful comparison of
financial information across national borders.
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\56\ See, e.g., comment letters from CalPERS and CFA.
\57\ The IASB, an accounting standard-setting body based in
London, was established to develop global standards for financial
reporting. The IASB is overseen by the IFRS Foundation (formerly
called the ``IASC Foundation''; this organization has been renamed
as a result of recent amendments to its Constitution, effective
March 1, 2010). The IFRS Foundation is responsible for the
activities of the IASB. While national accounting standard setters
traditionally have been accountable to a national securities
regulator or other government authority, until 2009, the IFRS
Foundation did not have a formal link with any national securities
regulators. Recognizing that a relationship with national securities
regulators would enhance the public accountability of the IFRS
Foundation, its trustees agreed on amendments to its Constitution to
establish a link between the IFRS Foundation and a Monitoring Board
composed of public capital markets authorities, including the
Commission, charged with the adoption or recognition of accounting
standards used in their respective jurisdictions. For further
information on the governance structure and operation of the IASB,
see http://www.iasb.org.
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C. Investor Understanding and Education Regarding IFRS
The Commission's Proposed Roadmap reflects its belief that U.S.
investors would benefit from the use of a single set of high-quality
accounting standards that are used consistently in the global capital
markets. In the Proposed Roadmap, the Commission stated that a single
set of global accounting standards could enhance the ability of
investors to compare financial information of U.S. companies with that
of non-U.S. companies. Improved comparability was the most commonly
cited reason commenters believed that U.S. capital markets would
benefit from the use of a single set of global accounting
standards.\58\ Because the benefits of adopting a single set of high-
quality globally accepted accounting standards would be realized only
if investors understood and had confidence in the financial reporting
system, the Commission believes that in order to assess incorporation
of IFRS into the U.S. financial reporting system, further work is
necessary to assess investor understanding and education regarding
IFRS. The staff's performance of the steps in the Work Plan should
provide the staff with insight into investors' understanding of IFRS
and actions that
[[Page 9499]]
need to be taken to increase investors' understanding.
---------------------------------------------------------------------------
\58\ See, e.g., AICPA, FEE, PPL, and TransCanada Corporation.
---------------------------------------------------------------------------
D. Examination of the U.S. Regulatory Environment That Would Be
Affected by a Change in Accounting Standards
The Commission acknowledges that the incorporation of IFRS into the
financial reporting system for U.S. issuers could have far-reaching
effects on financial reporting by U.S. issuers for other purposes. In
addition to filing financial statements with the Commission, U.S.
issuers commonly provide financial information to a wide variety of
other parties for different purposes. While the federal securities laws
provide the Commission with the authority to prescribe accounting
principles and standards to be followed by public companies and other
entities that provide financial information to the Commission and
investors, the Commission does not directly prescribe the provision and
content of information that U.S. issuers provide to parties other than
it and investors.\59\ However, changes to the Commission's accounting
standards could affect issuers and the information they provide to
regulatory authorities and others that rely on U.S. GAAP as a basis for
their reporting regimes.\60\ In accordance with the Work Plan, the
staff will study and consider other regulatory effects of mandating
IFRS for U.S. issuers.
---------------------------------------------------------------------------
\59\ Id.
\60\ Id. For example, U.S. issuers often provide U.S. GAAP-based
financial information to various federal and state regulators,
including regulators of financial institutions, insurance companies
and public utilities. Another example of the effect on reporting to
others relates to federal and state income taxes. Existing U.S. GAAP
is the predominant set of accounting standards used in the United
States, and the Internal Revenue Code has developed over time in
reliance on such accounting standards.
---------------------------------------------------------------------------
E. The Impact on Issuers, Both Large and Small, Including Changes to
Accounting Systems, Changes to Contractual Arrangements, Corporate
Governance Considerations, and Litigation Contingencies
In considering incorporation of IFRS into the U.S. financial
reporting system, the Commission must assess the significant effects
that such changes would have on the preparers of financial statements--
the thousands of companies that file financial statements with the
Commission under the federal securities laws. In addition to the
significant effects that a transition would have on investors, the
issuers of financial statements would incur costs, effort, and time as
a result of a transition. Smaller companies and those without
international operations will bear those costs and efforts differently
than larger companies and those that compete globally. As part of the
Work Plan, the staff will consider the impact of the logistical changes
involved in incorporating IFRS into the U.S. financial reporting
system. The extent of that impact may be decreased by ongoing
convergence efforts between the IASB and the FASB.
F. Human Capital Readiness
As contemplated by the Proposed Roadmap, incorporation of IFRS
would require consideration of the readiness of all parties involved in
the financial reporting process, including investors, preparers,
auditors, regulators, and educators. As a result, any change involving
the incorporation of IFRS into the financial reporting system for U.S.
issuers would require greater familiarity of IFRS for investors,
preparers, auditors, regulators, academics, and many others. Under the
Work Plan, the staff will review the effect of the incorporation of
IFRS on the education and training of professionals involved in the
financial reporting process as well as any impact on auditor capacity.
V. Potential Transition Matters
Many commenters on the Proposed Roadmap expressed concern about
having appropriate transition time to plan for and implement any
changes that would be needed in connection with a further move toward
incorporation of IFRS in domestic financial reporting.\61\ Commenters
also indicated that the Proposed Roadmap had created a significant
amount of uncertainty for market participants about how any proposed
changes would affect them and whether they should begin immediately to
allocate resources to prepare for use of IFRS.\62\
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\61\ See, e.g., AICPA, Cymer, Inc., and Graybar.
\62\ See, e.g., Best Buy Co., Inc., Cisco Systems, Inc., and
Fannie Mae.
---------------------------------------------------------------------------
We acknowledge that the changes to our current financial reporting
system that would be necessary to transition to a single set of global
accounting standards, including the incorporation of IFRS for U.S.
issuers, could represent a fundamental change that would require
significant transition time and effort for issuers, investors, and
others. Several steps in the Work Plan, including progress toward
completion of convergence, focus on providing the Commission with
additional information about the magnitude of these changes and the
logistics necessary for implementing them. This information will enable
the Commission to consider the plans that would need to be implemented
in a move to incorporate IFRS into the financial reporting system for
U.S. issuers, including providing sufficient time to efficiently and
effectively implement any changes in accounting standards.
The Proposed Roadmap proposed to allow certain large U.S. issuers
the option of preparing their financial statements using IFRS beginning
with filings for fiscal years ending on or after December 15, 2009. A
significant group of commenters disagreed with an early use option,
generally because of the increased complexity, lack of comparability
between U.S. issuers under a dual system, and the possibility of
companies opportunistically selecting which system of accounting
standards to apply.\63\ Alternative strategies proposed by this group
varied widely, and included the optional use of IFRS during any
contemplated transition period to a single set of global accounting
standards.\64\ Some commenters suggested an open option for all issuers
or, at least, a significantly expanded group of issuers.\65\
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\63\ See, e.g., CalPERS, CFA, CII, ICGN, and ITAC.
\64\ See, e.g., Ernst & Young LLP and PwC.
\65\ See, e.g., Abbott, AICPA, and S&P.
---------------------------------------------------------------------------
The Commission is not foreclosing the possibility in the future
that issuers may be permitted to choose between IFRS and U.S. GAAP, nor
is the Commission foreclosing the possibility of some manner of early
use or adoption approach. The conditions for early adoption, however,
would depend on the overall approach to incorporate IFRS into the U.S.
financial reporting system for U.S. issuers. As that overall approach
remains under evaluation, we are not actively pursuing rulemaking to
provide for an early use option at this time.\66\
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\66\ Accordingly, we are withdrawing the proposed rules for
limited early use of IFRS by certain U.S. issuers.
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VI. Role of the FASB
The FASB is the independent, private-sector accounting standard-
setting body for the United States. Since 1973, the Commission has
recognized the FASB's pronouncements establishing and amending
accounting principles as ``authoritative'' and ``generally accepted''
for purposes of the federal securities laws, absent any contrary
determination by the Commission.\67\ After enactment of the
[[Page 9500]]
Act, the Commission reaffirmed the recognition of the financial
accounting and reporting standards of the FASB as ``generally
accepted'' for purposes of the federal securities laws.\68\
---------------------------------------------------------------------------
\67\ See Statement of Policy on the Establishment and
Improvement of Accounting Principles and Standards, Accounting
Series Release No. 150 (December 20, 1973) (expressing the
Commission's intent to continue to look to the private sector for
leadership in establishing and improving accounting principles and
standards through the FASB) and the 2003 Policy Statement.
\68\ See 2003 Policy Statement.
---------------------------------------------------------------------------
Some commenters believed the lack of clarity in the Proposed
Roadmap regarding the future role of the FASB has created unnecessary
uncertainty. Commenters offered divergent opinions about whether the
Commission should maintain a relationship with the FASB as the U.S.
national accounting standard setter in lieu of directly relying on the
IASB.\69\
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\69\ NASBA and CalPERS expressed the view that the Commission
should maintain a relationship with the FASB, whereas KPMG LLP
expressed the view that the Commission should recognize the IASB as
the single accounting standard setter.
---------------------------------------------------------------------------
We believe the FASB will continue to play a critical and
substantive role in achieving the goal of global accounting standards.
The FASB is the accounting standard setter for the U.S. capital
markets, and it should continue to work with the IASB to improve
accounting standards. Moreover, that role would remain critical after
adoption of global standards. In this regard, we have considered the
role that other national standard setters have maintained in connection
with their consideration of IFRS. In particular, one organization with
national regulatory responsibilities noted in its comment letter on the
Proposed Roadmap that the continued existence of a national standard
setter allows for more effective working relationships with the IASB
and helps the IASB have an effective dialogue with constituents in that
country.\70\ We note many developed countries have maintained a
national standard setter or other mechanisms in connection with the
incorporation of IFRS into their capital markets.\71\
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\70\ See U.K. Financial Reporting Council.
\71\ For example, the European Union (``EU''), which required
the use of IFRS as the accounting standards for companies
incorporated in one of its Member States and whose securities are
listed on an EU-regulated market beginning with their 2005 financial
year, uses the European Financial Reporting Advisory Group to
provide technical advice to the European Commission in connection
with the EU's mechanism for endorsement of IFRS.
---------------------------------------------------------------------------
As part of the staff's execution of the Work Plan, it will continue
to analyze the nature of the appropriate and ongoing role of the FASB
should IFRS be incorporated into the U.S. financial reporting system
for U.S. issuers.
VII. Regulatory Requirements
This statement is not an agency rule requiring notice of proposed
rulemaking, opportunities for public participation, and prior
publication under the provisions of the Administrative Procedure Act
(``APA''). Similarly, the provisions of the Regulatory Flexibility Act,
which apply only when notice and comment are required by the APA or
another statute, are not applicable.
Dated; February 24, 2010.
By the Commission.
Elizabeth M. Murphy,
Secretary.
Work Plan for the Consideration of Incorporating International
Financial Reporting Standards Into the Financial Reporting System for
U.S. Issuers
Office of the Chief Accountant United States Securities and
Exchange Commission
This is a report by the Staff of the U.S. Securities and
Exchange Commission. The Commission has expressed no view regarding
the analysis, findings, or conclusions contained herein.
Table of Contents
Background...................................................... ......
I. Sufficient Development and Application of IFRS for the U.S. ......
Domestic Reporting System......................................
A. Introduction............................................. ......
B. Comprehensiveness of IFRS................................ ......
C. Auditability and Enforceability.......................... ......
D. Comparability Within and Across Jurisdictions............ ......
II. Independent Standard Setting for the Benefit of Investors... ......
A. Introduction............................................. ......
B. Oversight of the IFRS Foundation......................... ......
C. Composition of the IFRS Foundation and the IASB.......... ......
D. Funding of the IFRS Foundation........................... ......
E. IASB Standard-Setting Process............................ ......
1. Pre-eminence of Investors................................ ......
2. Timeliness............................................... ......
3. Objectivity.............................................. ......
III. Investor Understanding and Education Regarding IFRS........ ......
A. Introduction............................................. ......
B. Investor Understanding and Education..................... ......
IV. Regulatory Environment...................................... ......
A. Introduction............................................. ......
B. Manner in which the SEC Fulfills its Mission............. ......
C. Industry Regulators...................................... ......
D. Federal and State Tax Impacts............................ ......
E. Statutory Dividend and Stock Repurchase Restrictions..... ......
F. Audit Regulation and Standard Setting.................... ......
G. Broker-Dealer and Investment Company Reporting........... ......
H. Public versus Private Companies.......................... ......
V. Impact on Issuers............................................ ......
A. Introduction............................................. ......
B. Accounting Systems, Controls, and Procedures............. ......
C. Contractual Arrangements................................. ......
D. Corporate Governance..................................... ......
E. Accounting for Litigation Contingencies.................. ......
F. Smaller Issuers versus Larger Issuers.................... ......
VI. Human Capital Readiness..................................... ......
A. Introduction............................................. ......
B. Education and Training................................... ......
C. Auditor Capacity......................................... ......
[[Page 9501]]
Background
In the 2010 Statement,\72\ the U.S. Securities and Exchange
Commission (``SEC'' or ``Commission'') directs the staff of the
Office of the Chief Accountant of the SEC, with appropriate
consultation with other Divisions and Offices of the Commission
(collectively, the ``Staff''), to develop and execute a work plan
(``Work Plan''). The purpose of the Work Plan is to consider
specific areas and factors relevant to a Commission determination of
whether, when, and how our current financial reporting system for
U.S. issuers should be transitioned to a system incorporating
International Financial Reporting Standards (``IFRS'').\73\
Specifically, the Work Plan addresses areas of concern that were
highlighted by commenters on the Commission's proposed Roadmap for
the Potential Use of Financial Statements Prepared in Accordance
with International Financial Reporting Standards by U.S.
Issuers,\74\ including:
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\72\ See Commission Statement in Support of Convergence and
Global Accounting Standards, Release No. 33-9109 (February 24, 2010)
(``2010 Statement'').
\73\ Hereafter, the term ``IFRS'' refers to ``IFRS as issued by
the International Accounting Standards Board (`IASB')'' unless
otherwise noted.
\74\ Release No. 33-8982 (November 14, 2008) [73 FR 70816
(November 21, 2008)] (``Proposed Roadmap'').
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1. Sufficient development and application of IFRS for the U.S.
domestic reporting system;
2. The independence of standard setting for the benefit of
investors;
3. Investor understanding and education regarding IFRS;
4. Examination of the U.S. regulatory environment that would be
affected by a change in accounting standards;
5. The impact on issuers, both large and small, including
changes to accounting systems, changes to contractual arrangements,
corporate governance considerations, and litigation contingencies;
and
6. Human capital readiness.
The first two areas above consider characteristics of IFRS and
its standard setting that would be the most relevant to a future
determination by the Commission regarding whether to incorporate
IFRS into the financial reporting system for U.S. issuers. The
remaining four areas above relate to transitional considerations
that will enable the Staff to better evaluate the scope of, timing
of, and approach to changes that would be necessary to effectively
incorporate IFRS into the financial reporting system for U.S.
issuers, should the Commission determine in the future to do so.
In formulating this initial Work Plan, the Staff considered
commenters' views that U.S. issuers would need approximately four to
five years to successfully implement a change in their financial
reporting systems to incorporate IFRS.\75\ Therefore, assuming that
the Commission determines in 2011 to incorporate IFRS into the U.S.
financial reporting system, the first time U.S. issuers would report
under such a system would be approximately 2015 or 2016. The Staff
will further evaluate this timeline as a part of the Work Plan.
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\75\ See, e.g., The Boeing Company (``Boeing''), Northrop
Grumman Corporation (``Northrop Grumman''), PepsiCo, Inc.
(``Pepsi''), and tw telecom inc (``tw telecom''). Comment letters in
response to the Proposed Roadmap are available on the Commission's
Web site (at http://www.sec.gov/comments/s7-27-08/s72708.shtml).
Comments are also available for Web site 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. Unless otherwise noted, comment letters referenced in this
Work Plan were submitted in response to the Proposed Roadmap and are
cited by author.
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While an ultimate determination of any specific methods (e.g.,
convergence, standard-by-standard adoption, wholesale adoption) or
dates for the possible incorporation of IFRS into the financial
reporting system for U.S. issuers is beyond the scope of the Work
Plan, the information obtained through the Work Plan will facilitate
future Commission consideration of those matters. Further, while the
Work Plan focuses on the implications of incorporation of IFRS into
the financial reporting system for U.S. issuers on U.S.
constituents, the Staff also will consider the effects of its
recommendations to the Commission on other jurisdictions that have
incorporated or have committed to incorporate IFRS into their
financial reporting systems.
Each area is important to the Staff's consideration of the most
effective approach to advance the Commission's objective of
achieving a single set of high-quality globally accepted accounting
standards. The Staff, however, did not develop the Work Plan with
the intention that any one step is individually determinative of the
optimal path forward. Further, for many of the steps, the Staff is
seeking to assess the degree to which a particular attribute or
condition exists for consideration of how the topic interacts with
policy considerations. The Staff does not view the objective of its
efforts as being to determine whether an attribute ``passes'' or
``fails'' a pre-determined standard.
The Staff has developed this Work Plan based on its
understanding of the current environment. The Staff intends to
continually re-assess this Work Plan and adjust it as new
information is obtained or developments occur. Further, of
necessity, the Staff will modify this Work Plan in response to
constraints encountered, such as limited availability of
information, with the intention of accomplishing each section's
stated objective to the maximum extent possible.
In executing this Work Plan, the Staff will gather information
using a variety of methods, including, but not limited to,
performing its own research; seeking comment from, holding
discussions with, and analyzing information from constituents,
including investors, issuers, auditors, attorneys, other regulators,
standard setters, and academics; considering academic research; and
researching the experiences of other jurisdictions that have
incorporated or have committed to incorporate IFRS into their
financial reporting systems and foreign private issuers who
currently report under IFRS. The Staff will provide public progress
reports beginning no later than October 2010 and frequently
thereafter until the work is complete.
I. Sufficient Development and Application of IFRS for the U.S. Domestic
Reporting System
A. Introduction
The 2010 Statement notes that ``[a] necessary element for a set
of global accounting standards to meet [the agency's mission] is
that they must be high-quality * * *.'' The Commission previously
has described high-quality standards as consisting of a
``comprehensive set of neutral principles that require consistent,
comparable, relevant and reliable information that is useful for
investors, lenders and creditors, and others who make capital
allocation decisions.'' \76\ The Commission also has expressed its
belief that high-quality accounting standards ``must be supported by
an infrastructure that ensures that the standards are rigorously
interpreted and applied.'' \77\
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\76\ International Accounting Standards, Release No. 33-7801
(February 16, 2000) [65 FR 8896 (February 23, 2000)] (``2000 Concept
Release'').
\77\ 2000 Concept Release.
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In the Proposed Roadmap, the Commission stated that, in further
considering IFRS, it would ``consider whether those accounting
standards are of high-quality and sufficiently comprehensive.''
Accordingly, the Staff believes that an evaluation of whether IFRS
is sufficiently developed and applied to be the single set of
globally accepted accounting standards for U.S. issuers requires
consideration of the following areas:
The comprehensiveness of IFRS;
The auditability and enforceability of IFRS; and
The comparability of IFRS financial statements within
and across jurisdictions.
As the Commission noted in the Proposed Roadmap, there are areas
where completion of the IASB's standard-setting initiatives,
including those included in its convergence agenda with the
Financial Accounting Standards Board (``FASB''), as discussed in the
2010 Statement, should improve and further develop IFRS. The
Commission further notes in the 2010 Statement, ``[t]he successful
completion of these efforts would be a significant accomplishment
toward improving financial reporting for investors worldwide.'' As
such, the Staff's efforts in the above areas will include
consideration of the IASB's efforts to improve IFRS.
B. Comprehensiveness of IFRS
The Commission stated in the Proposed Roadmap that ``IFRS is not
as developed as [U.S. generally accepted accounting principles
(`U.S. GAAP')] in certain areas.'' This is due, in part, to IFRS's
relative youth, as articulated by one commenter:
``[W]e are concerned about quality and maturity of IFRS in
comparison to * * * [U.S. GAAP]. U.S. GAAP has a long history and
has been tested and refined through multiple and complex economic
events and developments. Many of the standards in U.S. GAAP have
emerged as a direct result of circumstances and events that
demonstrated
[[Page 9502]]
the need for better and more transparent financial reporting (for
example, the rise of derivative instruments and recent financial
scandals such as the collapse of Enron) * * *.'' \78\
\78\ CMS Energy Corporation and Consumers Energy Company. See
also, e.g., FedEx Corporation, Hess Corporation, Honeywell
International (``Honeywell''), Northrop Grumman, and Andrea Psoras
(``Psoras'').
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The Commission and commenters have noted limited IFRS guidance
in two respects. First, IFRS lacks broad guidance for: (1) Certain
topical areas, such as accounting for certain common control
transactions, recapitalization transactions, reorganizations,
acquisitions of minority shares not resulting in a change of control
and similar transactions, and the push down of a new accounting
basis in an entity's separate financial statements; (2) certain
industries, such as those related to utilities, insurance,
extractive activities, and investment companies; and (3) disclosures
in order to provide better transparency regarding the application of
accounting principles.\79\
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\79\ See, e.g., Proposed Roadmap. See also, e.g., Financial
Accounting Foundation (``FAF''), Investors Technical Advisory
Committee (``ITAC''), Liberty Global, and Standard & Poor's Ratings
Services. The Staff acknowledges that in certain of these specified
areas, these concerns are equally applicable to U.S. GAAP.
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Second, where IFRS provides broad guidance, the IASB, as a
matter of operating practice, has elected to make guidance less
detailed and prescriptive than U.S. GAAP.\80\ Commenters' views were
mixed as to whether the lesser degree of detailed guidance under
IFRS, as compared to U.S. GAAP, is indicative of a higher quality
set of accounting standards. Commenters who preferred IFRS's
approach asserted that it is less complex than U.S. GAAP and allows
companies to capture the substance of transactions.\81\ On the other
hand, commenters who preferred U.S. GAAP's approach expressed that
IFRS relies too much on management discretion, thereby increasing
the potential for opportunistic accounting; creating challenges for
auditors, as discussed in section I.C below; and reducing
comparability, as discussed in section I.D below.\82\
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\80\ See, e.g., Proposed Roadmap. See also, e.g., Accretive
Solutions, First Commonwealth Financial Corporation (``First
Commonwealth''), and ITAC.
For example, as the FASB staff discussed in ``Board Meeting
Handout: Joint Revenue Recognition Project'' (April 9, 2008)
(available at: http://www.fasb.org/04-09-08_rev.pdf)), revenue
recognition guidance under U.S. GAAP (prior to the FASB
Codification) consisted of over 200 pieces of literature from
various sources, whereas revenue recognition guidance under IFRS
``lacks explicit measurement guidance. Although such measurement
guidance exists in abundance in U.S. GAAP, IFRS suffers from the
opposite extreme.''
\81\ See, e.g., Alcoa Inc. (``Alcoa''), The Bank of New York
Mellon, Federation of European Accountants (``FEE''), Institute of
Chartered Accountants in England and Wales (``ICAEW''), and Gregory
Misiorek.
\82\ See, e.g., First Commonwealth, Fund of Stockowners Rights
(``Fund Stockowners Rights''), State of New York Banking Department
(``NYBD''), Psoras, Sanctuary Financial Group, Inc., and tw telecom.
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Other commenters have argued, however, that this debate may not
be relevant in the U.S. environment. For example, the FAF asserted
in its comment letter that:
``[W]hile it is perceived that IFRS provides financial statement
preparers more discretion in application than U.S. GAAP, such
additional discretion may not result in major differences in the
application of IFRS by U.S. companies because the U.S. institutional
framework plays a major role in shaping how companies would apply
the discretion.''
The Staff will analyze for the Commission's benefit the extent
to which IFRS is comprehensive so as to support a Commission
decision regarding whether to incorporate IFRS into the financial
reporting system for U.S. issuers. Specifically, the Staff will:
Inventory areas in which IFRS does not provide guidance
or where it provides less guidance than U.S. GAAP.
Analyze how issuers, auditors, and investors currently
manage these situations in practice.
Identify areas in which issuers, auditors, and
investors would most benefit from additional IFRS guidance.
C. Auditability and Enforceability
IFRS's less detailed and prescriptive guidance may or may not
create challenges in its auditability and enforceability. If it were
to do so, IFRS may ``[make] litigation or enforcement outcomes more
difficult to predict.'' \83\ This outcome may be true not only
within jurisdictions, but also across jurisdictions, as the
existence of differing regulatory regimes and legal environments
across jurisdictions may exacerbate the inconsistent interpretation
and enforcement of IFRS. For example, the CFA Institute stated the
following in its comment letter:
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\83\ Proposed Roadmap.
``Investors need greater assurance regarding the divergence of
application within the principles-based standards of IFRS prior to
adoption. Conversion to more principles-based standards that are
applied inconsistently in different regulatory environments,
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auditing regimes and cultures may not be beneficial to investors.''
Commenters raised several concerns regarding the auditability
and enforceability of IFRS, including the risk of opportunistic
accounting; the potential for accounting conclusions of preparers to
be unfairly criticized by auditors, regulators, and investors; and
diminished comparability.
First, regarding the risk of opportunistic accounting, some
commenters expressed that IFRS allows for increased flexibility, as
compared to U.S. GAAP, and may result in standards being less
auditable and enforceable, which would not be in the public
interest.\84\ For example, one commenter stated:
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\84\ See, e.g., Fund Stockowners Rights, National Association of
State Boards of Accountancy (``NASBA''), and Psoras.
``The international standards (IFRS) are widely viewed as less
specific and providing less prescriptive guidance than U.S. GAAP
(i.e., IFRS are more principles based), as well as more subjective
primarily due to more use of fair value measurements. The
downgrading of verifiability as a key concept guiding accounting
standard setting and the resulting focus on fair value measurement
significantly impairs the ability of an auditor to limit
opportunistic actions of management and improve financial
reporting.'' \85\
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\85\ American Accounting Association, Financial Accounting
Standards Committee (``AAA-FASC'').
Second, regarding the potential for accounting conclusions of
preparers to be unfairly criticized by auditors, regulators, and
investors, some commenters have expressed concerns that IFRS's less
detailed and prescriptive guidance could expose companies to
increased claims by shareholders and others seeking to challenge its
application, given the perceived litigious environment in the United
States.\86\ The Staff has acknowledged similar concerns in the
context of an objectives-oriented system, noting:
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\86\ See, e.g., FPL Group, Inc. (``FPL'') and tw telecom.
``We believe that the existence of a strong and consistently
applied enforcement mechanism is a necessary component to the
success of an objectives-oriented system. Preparers and auditors
have expressed concern that those charged with enforcement in a
principles-based environment will question reasonable judgments made
in good faith (footnote omitted). In fact, some have asked whether
the Commission staff would be willing to accept reasonable views and
interpretations by preparers and auditors in the application of
accounting principles (citation omitted).'' \87\
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\87\ ``Study Pursuant to Section 108(d) of the Sarbanes-Oxley
Act of 2002 on the Adoption by the United States Financial Reporting
System of a Principles-Based Accounting System'' (July 25, 2003)
(``Principles-Based Accounting System Study'').
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However, the Staff also stated:
``We believe * * * that the concern over litigation uncertainty
is sometimes overstated * * *. If preparers and auditors maintain
contemporaneous documentation that demonstrates that they properly
determined the substance of a covered transaction or event, applied
the proper body of literature to it, had a sound basis for their
conclusions-particularly those involving the exercise of judgment-
and ensured through disclosure that their method was transparent,
their exposure to litigation may be reduced.'' \88\
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\88\ Principles-Based Accounting System Study.
Some commenters stated that the U.S. legal system, which relies,
to a larger extent, on guidance, rules, and bright lines, ultimately
will drive IFRS to evolve, similar to U.S. GAAP, into a rules-based
set of standards.\89\ Accordingly, commenters advocated addressing
the causes of rules-based standards, such as through changes to the
U.S. legal and regulatory environment, and development of an
accounting and auditing judgment framework to reassure issuers that
[[Page 9503]]
they will not be penalized for the use of reasonable judgment in the
application of IFRS.\90\
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\89\ See, e.g., Air Products and Chemicals, Inc. (``Air
Products''), Community Health Systems, Inc. (``Community Health''),
JPMorgan Chase (``JP Morgan''), The London Centre for International
Corporate Governance Law (``London Ctr Int'l Corp Gov Law''), and
Edward Randle.
\90\ See, e.g., American Institute of Certified Public
Accountants (``AICPA''), California Society of Certified Public
Accountants (``CA CPAs''), Center for Audit Quality (``CAQ''),
Deloitte & Touche LLP (``Deloitte''), McGladrey & Pullen LLP
(``McGladrey''), Morgan Stanley, NYBD, and The Ohio Society of CPAs
(``Ohio CPAs'').
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The Staff also observed that the exercise of professional
judgment in an objectives-oriented regime would require certain
cultural changes, including: (1) A reduction in the tendency to ask
questions like ``where does the literature say I cannot do this,''
(2) a reduction in an audit checklist mentality, (3) an improvement
in accounting professionals' understanding of the economic substance
of a transaction, and (4) an improvement in the transparency of
disclosures.\91\
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\91\ See Principles-Based Accounting System Study.
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Finally, IFRS's less detailed and prescriptive guidance, coupled
with any diversity of perspectives amongst issuers, auditors, and
regulators on a global basis may affect the comparability of
financial statements prepared under IFRS. For example, in the
auditing context, commenters raised concerns regarding the
possibility that each audit firm will develop its own
interpretations of IFRS,\92\ resulting in reduced comparability
across companies using different auditors. Some commenters went
further by echoing concerns raised in the 2007 Concept Release \93\
that IFRS also may contribute to reduced comparability within audit
firms, due to the lack of internationally integrated accounting
firms with a single global accounting perspective.\94\
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\92\ See, e.g., Community Health, Eli Lilly and Company (``Eli
Lilly''), and Marriott International, Inc. (``Marriott'').
\93\ In Concept Release on Allowing U.S. Issuers to Prepare
Financial Statements in Accordance with International Financial
Reporting Standards, Release No. 33-8831 (August 7, 2007) [72 FR
45600 (August 14, 2007)] (``2007 Concept Release''), the Commission
stated, ``for the U.S. firms that are members of global audit
networks, systems of quality control need to foster the high quality
and consistent application of IFRS across national borders.''
\94\ See, e.g., London Ctr Int'l Corp Gov Law.
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Similarly, commenters expressed concern that differing
regulation and enforcement structures and practice on a global basis
may undermine the comparability of financial statements prepared
under IFRS.\95\ The Commission has noted that securities regulators
have developed and continue to improve infrastructure to foster the
consistent and faithful application and enforcement of IFRS around
the world.\96\ For example, in January 2007, an International
Organization of Securities Commissions (``IOSCO'') database for
cataloguing and sharing securities regulators' experiences on IFRS
application around the world became operational.\97\ Further, the
Commission and the Committee of European Securities Regulators
(``CESR'') published a work plan in August 2006, covering
information sharing in regular meetings and the confidential
exchange of issuer-specific information.\98\ In addition to the
coordination with organizations of securities regulators and under
the CESR work plan, the Commission also has developed bilateral
dialogues with particular securities regulators to discuss
accounting and enforcement matters.
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\95\ See, e.g., California Public Employees' Retirement System
(``CalPERS''), Cleary Gottlieb Steen & Hamilton LLP, Group of North
American Insurance Enterprises, and International Corporate
Governance Network (``ICGN'').
\96\ See 2007 Concept Release.
\97\ See Id.
\98\ See Id.
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These recent developments were noted by the CFA Institute in its
comment letter:
``[T]his coordinated effort and related processes [by members of
IOSCO] are still being developed and the overall effectiveness of
their regulatory oversight has not been fully demonstrated (i.e.,
that the interpretation and enforcement of IFRS is consistent). The
SEC should focus on how IFRS is being applied and ensure that
studies about this are undertaken and widely circulated to all
interested parties.''
The Staff believes that the auditability and enforceability of
financial statements prepared under IFRS is a key component in
considering whether to incorporate IFRS into the financial reporting
system for U.S. issuers. Accordingly, the Staff intends to gather
data to inform the Commission in this regard. Specifically, the
Staff will:
Analyze factors that may influence the auditability of
financial statements prepared under, and the enforceability of,
IFRS.
Evaluate factors that may influence the consistent
audit of financial statements prepared under, and the enforcement
of, IFRS.
Identify potential changes to improve the auditability
and enforceability of financial statements prepared under IFRS and
to facilitate their consistent audit and enforcement.
D. Comparability Within and Across Jurisdictions
One of the primary benefits of a single set of global accounting
standards is increased comparability of financial statements.
However, as the Proposed Roadmap stated:
``The advantages to U.S. investors of increased comparability
across investment alternatives, as contemplated under this Roadmap,
are dependent upon financial reporting under IFRS that is, in fact,
consistent across companies, industries and countries.''
A number of factors may undermine the comparability of IFRS
financial statements. As discussed above, the lesser degree of
comprehensiveness and the challenges of consistent audit and
enforcement of IFRS financial statements may affect their
comparability. In addition, jurisdictional variations in the
application of IFRS, the optionality within IFRS, and
inconsistencies arising from differences in the translation of IFRS
also may reduce the benefits of IFRS as a single set of global
accounting standards.\99\
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\99\ See Proposed Roadmap.
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Some sources indicate that more than 100 countries ``require or
allow the use'' of IFRS.\100\ At the same time, there is the real
possibility of jurisdictional variations, which could undermine
comparability. Jurisdictional variations may arise from both
authoritative and informal application guidance, changes made to the
standards for purposes of use within a jurisdiction, and variations
in the times it may take separate jurisdictions to complete their
respective processes to enact into law or otherwise adopt new or
amended standards. Historical approaches and cultural differences
also may give rise to jurisdictional variations.
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\100\ See, e.g., Deloitte Touche Tohmatsu, ``Use of IFRSs by
Jurisdiction.'' (available at: http://www.iasplus.com/country/useias.htm)
---------------------------------------------------------------------------
Commenters frequently cited concerns regarding the existence of
and future potential for jurisdictional variations of IFRS.\101\
Similarly, the Commission noted that ``the extent to which IFRS is
adopted and applied globally, and whether IFRS is adopted and
applied in foreign jurisdictions as issued by the IASB or as
jurisdictional variations of IFRS'' ``may influence the degree to
which comparability may be achieved through widespread adoption of
IFRS.'' \102\
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\101\ See, e.g., Corporate Roundtable on International Financial
Reporting (``CRIFR''), The Davey Tree Expert Company (``Davey
Tree''), Institute of Chartered Accountants of Scotland (``ICAS''),
KPMG LLP (``KPMG''), The Lubrizol Corporation, McDonald's
Corporation (``McDonald's''), Mead Westvaco Corporation (``Mead
Westvaco''), NASBA, The Travelers Companies, Inc. (``Travelers''),
and Tuesday Morning Corporation (``Tuesday Morning'').
\102\ Proposed Roadmap.
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Regarding optionality, the SEC's Advisory Committee on
Improvements to Financial Reporting (``CIFiR'') and others have
asserted that IFRS's permitted alternative accounting treatments in
a number of areas ``contribute to avoidable complexity by making
financial reports less comparable.'' \103\
---------------------------------------------------------------------------
\103\ ``Final Report of the Advisory Committee on Improvements
to Financial Reporting to the United States Securities and Exchange
Commission'' (August 1, 2008) (``CIFiR Final Report''), page 50.
(available at: http://www.sec.gov/about/offices/oca/acifr/acifr-finalreport.pdf)
---------------------------------------------------------------------------
In the Proposed Roadmap, the Commission expressed that:
``IFRS * * * in certain areas permits a greater amount of
options than in U.S. GAAP * * * [This] greater optionality in IFRS
could reduce comparability of reported financial information, as
different issuers may account or provide disclosure for similar
transactions or events in different ways[,] but this flexibility
also allows a financial statement that may more closely reflect the
economics of transactions.''
To counter any diminished comparability, commenters expressed
the need for greater transparency around divergence in
application.\104\ However, as one commenter noted, extensive
footnote disclosures explaining how management has applied its
discretion ``will place the burden upon the user of the financial
statements to understand and interpret the differences between
companies * * *.'' \105\
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\104\ See, e.g., CFA Institute (``CFA'') and ITAC.
\105\ tw telecom.
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In light of the these concerns, the Staff will analyze for the
Commission's benefit the
[[Page 9504]]
extent to which financial statements prepared under IFRS are
comparable within and across jurisdictions so as to support a
Commission decision regarding whether to incorporate IFRS into the
financial reporting system for U.S. issuers. Specifically, the Staff
will:
Analyze factors that may influence the degree of
comparability of financial statements prepared under IFRS on a
global basis.
Assess the extent to which financial statements
prepared under IFRS may not be comparable in practice and how
investors manage these situations.
Identify ways to improve the comparability of financial
statements prepared under IFRS on a cross-border basis to provide
the most benefit for investors.
II. Independent Standard Setting for the Benefit of Investors
A. Introduction
The 2010 Statement notes that ``[a]nother important element for
a set of high-quality global accounting standards is whether the
accounting standard setter's funding and governance structure
support the independent development of accounting standards for the
ultimate benefit of investors.'' To provide the Commission with the
information necessary to determine whether the IASB is sufficiently
independent for IFRS to be the single set of high-quality globally
accepted accounting standards for U.S. issuers, the Staff will
analyze four areas in particular:
Oversight of the IFRS Foundation (formerly called the
``International Accounting Standards Committee (`IASC')
Foundation''); \106\
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\106\ In January 2010, the IFRS Foundation Trustees
(``Trustees'') agreed to a number of changes to their Constitution,
including changes to the names of several bodies within the
organization, effective March 1, 2010. This Work Plan uses the
revised names, except when citing a document issued under the
predecessor name. See IASC Foundation, Trustees Announce Further
Governance Enhancements (February 15, 2010). (available at: http://www.iasb.org/News/Press+Releases/further+governance+enhancements.htm)
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Composition of the IFRS Foundation and the IASB;
Funding of the IFRS Foundation; and
IASB standard-setting process.
B. Oversight of the IFRS Foundation
The IASB was established to develop global standards for
financial reporting.\107\ The IASB is overseen by the IFRS
Foundation, which is responsible for the activities of the IASB and
other work that centers on IFRS, such as initiatives related to
translation of IFRS from the English language, education about IFRS,
and the development of interactive data taxonomies for IFRS.\108\
---------------------------------------------------------------------------
\107\ For more information on the structure and operation of the
IASB, see www.iasb.org.
\108\ See Proposed Roadmap.
---------------------------------------------------------------------------
National accounting standard setters traditionally have been
accountable to a national securities regulator or other government
authority. In the United States, the FASB is overseen by the
Commission. Until 2009, the IFRS Foundation did not have a similar
link with any national securities regulators and public capital
market authorities.\109\
---------------------------------------------------------------------------
\109\ See Id.
---------------------------------------------------------------------------
The Commission has long supported enhanced governance of the
IFRS Foundation (and its predecessor, the IASC), which includes
independent oversight representing the public interest.\110\
---------------------------------------------------------------------------
\110\ See Id.; Acceptance From Foreign Private Issuers of
Financial Statements Prepared in Accordance With International
Financial Reporting Standards Without Reconciliation to U.S. GAAP,
Release No. 33-8879 (December 21, 2007) [73 FR 986 (January 4,
2008)] (``2007 FPI Adopting Release''); 2007 Concept Release; and
2000 Concept Release.
---------------------------------------------------------------------------
Recognizing that a relationship with public capital market
authorities would enhance the public accountability of the IFRS
Foundation, the Trustees amended the IFRS Foundation's Constitution
to establish a connection between the IFRS Foundation and a
Monitoring Board \111\ composed of public capital market authorities
charged with the adoption or recognition of accounting standards
used in their respective jurisdictions.
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\111\ For more information on the mission, duties, structure,
and operation of the Monitoring Board, see ``Charter of the IASCF
Monitoring Board'' (available at: http://www.iasb.org/NR/rdonlyres/28B9BB17-79C8-4623-B043-B15F8D7A774D/0/Monitoring_Board_Charter.pdf) and Memorandum of Understanding To Strengthen the
Institutional Framework of the International Accounting Standards
Committee Foundation (April 2009) (available at: http://www.iasb.org/NR/rdonlyres/67B0EE51-56B8-4183-9958-CDAC52BC505C/0/MGMou060409.pdf).
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Commenters noted that recent events have demonstrated the
significant pressure that can be exerted on a standard setter and
acknowledged that the establishment of the Monitoring Board was an
important step in improving the public accountability of the IFRS
Foundation.\112\ However, some commenters suggested improvements to
the Monitoring Board \113\ and urged that the Monitoring Board
should include representatives from the investment community,
analysts, auditors, and preparers, as well as national and regional
regulators.\114\ A number of commenters noted that additional time
is needed to determine the effect that the Monitoring Board will
have on the public accountability of the IFRS Foundation and the
IASB.\115\
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\112\ See, e.g., Alcoa, Ernst & Young LLP (``EY''), FEE, U.K.
Financial Reporting Council (``FRC''), Potash Corporation of
Saskatchewan Inc. (``Potash''), and Securities Industry and
Financial Markets Association (``SIFMA'').
\113\ See, e.g., Council of Institutional Investors (``CII'')
(suggested, for example, that the Monitoring Board duties include:
(1) explicit responsibility for protecting and defending the
independence of the IASB and (2) focus primarily on educating and
communicating with the representatives of public authorities about
the benefits of independent private-sector standard setting),
Institut der Wirtschaftspr[uuml]fer in Deutschland (Institute of
Public Auditors in Germany) (``IDW'') (suggested the Monitoring
Board participate in the appointment process and approve the
appointment of Trustees, but not assume responsibility for Trustee
appointment directly, so as to avoid overstepping the fine line
between oversight and control of the IFRS Foundation).
\114\ See, e.g., CalPERS, CII, FRC (expressed the view that in
due course the IFRS Foundation Monitoring Board should be extended
to encompass official global organizations with a wider range of
responsibilities, notably those with financial stability, banking,
and insurance mandates, provided that the primary aim of accounting
standards to improve information to providers of capital is
respected), ICGN, and Nicholas V[eacute]ron (observed that the
current Monitoring Board is badly designed as it excludes important
stakeholders. This commenter suggested that the Commission should
promote the transformation of the Monitoring Board into a broader
body that represents all the stakeholders, especially investor
groups).
\115\ See, e.g., AICPA, Alcoa, Deloitte, Deutsche Bank AG
(``Deutsche Bank''), FAF, FEE, FRC, IBM Corporation, ICAEW, IDW,
Potash, tw telecom, and XenoPort, Inc. (``XenoPort'').
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The Staff believes that effective oversight is critical to any
decision to incorporate IFRS into the financial reporting system for
U.S. issuers. The Staff will analyze for the Commission's benefit
the extent to which the Monitoring Board is functioning as designed
so as to support a Commission decision regarding whether to
incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will analyze the operations of the
Monitoring Board and assess any areas for improvement.
C. Composition of the IFRS Foundation and the IASB
The IFRS Foundation is governed by 22 trustees with
geographically diverse backgrounds.\116\ Trustees are appointed for
a term of three years that is renewable once.
---------------------------------------------------------------------------
\116\ Six of the Trustees must be selected from the Asia/Oceania
region, six from Europe, six from North America, one from Africa,
one from South America, and two from any region, subject to
maintaining overall geographical balance.
---------------------------------------------------------------------------
The IASB is currently composed of 15 full-time members who serve
five-year terms subject to one re-appointment.\117\ Full-time
members are required to sever all employment relationships and
positions that may give rise to economic incentives that might
compromise a member's independent judgment in setting accounting
standards. The IASB members come from ten countries \118\ and have a
variety of backgrounds (e.g., auditors, investors, and preparers).
In selecting IASB members, the Trustees must seek an appropriate
mix, such that the IASB is not dominated by any particular
constituency.
---------------------------------------------------------------------------
\117\ As a result of changes to the IFRS Foundation's
Constitution in January 2010, second terms will be limited to three
years for IASB members not serving as the chair or vice chair. See
Trustees Announce Further Governance Enhancements (February 15,
2010). (available at: http://www.iasb.org/News/Press+Releases/further+governance+enhancements.htm)
\118\ As of February 2010.
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In response to feedback received through its current
Constitution review, the IFRS Foundation has approved amendments to
its Constitution, which:
Emphasize the organization's commitment to developing
standards for investors.
[[Page 9505]]
Provide for enhanced guidelines regarding the Trustees'
geographical diversity.\119\
---------------------------------------------------------------------------
\119\ See footnote 45, above.
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Provide additional guidelines regarding geographical
diversity of the IASB members to help ensure that membership of the
IASB represents a broad international basis.\120\
---------------------------------------------------------------------------
\120\ Membership of the IASB will be four members drawn from
each of the Asia/Oceania region, Europe, and North America; one
member from South America; one member from Africa; and two members
from any area, subject to overall geographical balance.
---------------------------------------------------------------------------
Increase the maximum number of members of the IASB to
16 by July 2012, with up to three positions being permitted for
part-time members (There are no part-time members currently).\121\
---------------------------------------------------------------------------
\121\ The Trustees concluded that the expansion of the IASB to
16 members would enable the IASB to discharge its increasing liaison
functions in an improved manner, while not negatively affecting the
efficiency of the IASB's deliberative processes.
---------------------------------------------------------------------------
Some commenters argued that all IASB members should be full
time--for example, in order to avoid potential conflicts of interest
with their outside employers.\122\ Further, these commenters
expressed the view that the IASB should include greater
representation from investors, as the primary consumers of financial
reports.
---------------------------------------------------------------------------
\122\ See, e.g., CII and ICGN.
---------------------------------------------------------------------------
The Staff believes the composition of the IFRS Foundation and
the IASB affects the independence of the IASB's standard-setting
process. The Staff will analyze for the Commission's benefit the
extent to which the composition of the IFRS Foundation and the IASB
promotes the independent development of accounting standards for the
ultimate benefit of investors so as to support a Commission decision
regarding whether to incorporate IFRS into the financial reporting
system for U.S. issuers. Specifically, the Staff will analyze the
changes to the composition of the IFRS Foundation and the IASB and
their effect on the IASB's ability to independently develop
accounting standards for the ultimate benefit of investors.
D. Funding of the IFRS Foundation
Until 2008, the IFRS Foundation financed IASB operations largely
through voluntary contributions from a wide range of market
participants from across the world's capital markets, including from
a number of firms in the accounting profession, companies,
international organizations, central banks, and governments. Funding
commitments were made for the period 2001-2005 and then were
extended for an additional two years through 2007. In June 2006, the
Trustees agreed on four characteristics \123\ that should govern the
establishment of a funding approach designed to enable the IFRS
Foundation to remain a private-sector organization with the
necessary resources to conduct its work in a timely fashion. The
IFRS Foundation has no authority to impose funding regimes on
countries, but the Trustees have worked closely with regulatory and
other public authorities and key stakeholder groups on the creation
of national regimes. Since 2008, efforts to change the financing
basis of the IFRS Foundation have continued. Most funds are now
obtained on a national basis from national standard setters and
national capital market authorities.\124\ The number of narrowly-
based voluntary regimes is decreasing. Contributions from the major
accounting firms also are decreasing.
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\123\ The Trustees determined that characteristics of the new
plan for 2008 would be broad-based, compelling, open-ended, and
country-specific. See IASC Foundation, Annual Report 2006.
(available at: http://www.iasb.org/NR/rdonlyres/D95B6BF3-A12A-4C6C-BDA1-BDC98B4F2A45/0/IASCFoundationAnnualReportFinal.pdf)
\124\ See the list of long-term funding commitments on the
IASB's Web site. (available at: http://www.iasb.org/The+organisation/Governance+and+accountability/Financing/Long-term+funding+commitments.htm)
---------------------------------------------------------------------------
The Commission previously has expressed concern that the IASB
may be subject to a perceived or, potentially, an actual connection
between the availability of funding and the outcome of its standard-
setting process.\125\ Similarly, the FCAG Final Report stated that
in order for the IASB to protect its independence from undue
influence, ``the IASB must have a permanent funding structure under
which sufficient funds are provided to it on an equitable and
mandatory basis.'' In the Proposed Roadmap, the Commission expressed
the view that its ``future determination regarding the required use
of IFRS for all U.S. issuers should only occur after the IFRS
Foundation reaches its goal of securing a stable funding mechanism
that supports the independent functioning of the IASB.''
---------------------------------------------------------------------------
\125\ See Proposed Roadmap and 2007 FPI Adopting Release. See
also ``Report of the Financial Crisis Advisory Group'' (July 28,
2009) (``FCAG Final Report''). (available at: http://www.fasb.org/cs/ContentServer?c=Document_C&pagename=FASB%2FDocument_C%2FDocumentPage&cid=1176156365880). The Financial Crisis Advisory
Group (``FCAG'') was formed to advise the FASB and the IASB
(collectively, the ``Boards'') about the standard-setting
implications of the financial crisis and potential changes in the
global regulatory environment. The members of the FCAG are senior
leaders with broad international experience in the financial
markets, observed by key global banking, insurance and securities
regulators.
---------------------------------------------------------------------------
Similarly, many comment letters raised concerns about the
independence and stability of the IASB's funding.\126\ A number of
commenters were concerned that the current voluntary nature of the
contributions, as well as the source, might impact the apparent, or
actual independence of the IASB.\127\ Commenters expressed the view
that establishing a stable, transparent funding framework for the
IFRS Foundation would significantly reduce the concern that
financial pressure could compromise the independence of the IASB's
decision-making.\128\
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\126\ See, e.g., Association of Chartered Certified Accountants
(``ACCA''), Alcoa, BEP, CAQ, Grant Thornton LLP (``GT''), McGladrey,
PPL Corporation (``PPL''), PricewaterhouseCoopers LLP (``PwC''), UBS
AG (``UBS''), United Technologies Corporation (``UTC''), and
WellPoint, Inc.
\127\ See, e.g., American Accounting Association, Financial
Reporting Standing Committee; CalPERS; CRIFR; and Institute of
Management Accountants (``IMA'').
\128\ See, e.g., CalPERS and IMA.
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The Staff recognizes that the United States has a significant
interest in the stable funding of the IFRS Foundation \129\ and is
committed to exploring strategies to address this issue.
Accordingly, the Staff will analyze for the Commission's benefit:
(1) The extent to which the IFRS Foundation's sources of funding
promote the independence of the IASB, and (2) possible funding
mechanisms to provide the U.S.-based contribution to the IFRS
Foundation. Specifically, the Staff will:
---------------------------------------------------------------------------
\129\ In 2009, 33 companies based in the United States were
expected to provide voluntary contributions, ranging widely in
amount. See IASC Foundation, Information for Observers: IASCF
Meeting with Monitoring Board (April 1, 2009). (available at: http://www.iasb.org/NR/rdonlyres/B0B1770C-F414-4DCA-968D-505D521D1839/0/APMB2CFundingreport.pdf)
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Evaluate whether the Trustees' four characteristics
governing the establishment of a funding approach are appropriate.
Monitor the IFRS Foundation's funding arrangements to
determine whether voluntary funding from individual organizations
continues to be reduced and a stable, independent funding platform
is secured.
Explore alternatives for funding mechanisms in the
United States.
E. IASB Standard-Setting Process
The IASB conducts projects necessary to develop high-quality
standards. The Due Process Handbook for the IASB details procedures
to be followed when setting standards, with an emphasis on how each
stage of the process must address transparency and accessibility,
extensive consultation and responsiveness, and accountability.\130\
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\130\ See IASC Foundation, Due Process Handbook for the IASB
(October 2008) (``Handbook''). (available at: http://www.iasb.org/NR/rdonlyres/1E8D75B7-927F-495B-BE4A-04C9BE967097/0/DueProcess09.pdf)
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The IASB solicits views and seeks input from the public
throughout the standard-setting process, starting with selecting
items for its agenda and including developing and publishing a
discussion paper and/or exposure draft and issuing a final standard.
Input is received from discussions at its project working group and
roundtable meetings as well as written submissions from
constituents.\131\
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\131\ See Id.
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In the 2003 Policy Statement, the Commission stressed the
importance of three components in the standard-setting process, as
follows:
Consideration of international convergence on high-
quality accounting standards for the public interest and for the
protection of investors;\132\
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\132\ The effect of international convergence on the quality of
IFRS will be evaluated in section I. Accordingly, in this section,
this component of the standard-setting process will focus on
accounting standards for the public interest and the protection of
investors.
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Timeliness in completing projects, while satisfying
appropriate public notice and comment requirements; and
Objectivity in decision-making and careful
consideration of the views of constituents and the expected benefits
and perceived costs of each standard.
[[Page 9506]]
The following discussion will consider each of these components
in the context of the IASB's standard-setting process.
1. Pre-eminence of Investors
In its final report, CIFiR asserted that:
Investor perspectives are critical to effective standards-
setting, as investors are the primary consumers of financial
reports. Only when investor perspectives are properly considered by
all parties does financial reporting meet the needs of those it is
primarily intended to serve. Therefore, investor perspectives should
be given pre-eminence by all parties involved in standards-
setting.'' \133\
\133\ See CIFiR Final Report, page 57.
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Several commenters, including investor groups, expressed the
view that greater investor representation on the IASB (and FASB) and
related oversight groups would assist in meeting the primary
objective of general purpose financial reporting (i.e., providing
useful information to investors in making business and economic
decisions).\134\ One commenter expressed the view that the lack of
investor representation may expose those charged with governance to
pressure from special interest groups to act in a manner that may
not be compatible with the best interests of investors.\135\
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\134\ See, e.g., ICGN.
\135\ See CFA.
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The Staff notes the IFRS Foundation's recent efforts involving
investor groups. Recently, two new members from the U.S. investor
community have been appointed to the IASB.\136\ In addition, the
IASB has an advisory council--the IFRS Advisory Council (formerly
called the ``Standards Advisory Council'') \137\--that is composed
of approximately 40 individuals \138\ drawn from geographically-
diverse countries, some of which use IFRS and others that do not.
The IFRS Advisory Council has an investor sub-group representing
major investment organizations in the U.S. and internationally to
allow for better engagement of the IASB and its staff with investor
representatives.
---------------------------------------------------------------------------
\136\ See ``Two leading US analysts appointed to the IASB,''
IASB press release (May 21, 2009). (available at: http://www.iasb.org/NR/rdonlyres/2BA72D82-ACFD-4899-89D9-4DB8151B44F2/0/PRTwoleadingUSanalystsappointedtotheIASB210509.pdf)
\137\ The IFRS Advisory Council supports the IASB and provides a
forum where the IASB consults individuals and representatives of
organizations affected by its work that are committed to the
development of high-quality IFRS.
\138\ A list of members is available at: http://www.iasb.org/NR/rdonlyres/A0D53C88-8988-4B3F-8B0A-07B01DCBF975/0/MembershipSAC.pdf.
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The Staff intends to explore the extent to which the IASB
promotes the pre-eminence of investor views. For example, the Staff
will review the IASB's practices, as compared to the requirements
detailed in the Constitution, Handbook, and other relevant IFRS
Foundation and IASB documents and constituent expectations, to
assess the IASB's focus on the pre-eminence of investor views.
2. Timeliness
The IASB normally allows a period of 120 days for comment on a
discussion paper and exposure draft. For major projects (which are
those projects involving pervasive or difficult conceptual or
practical issues), the IASB normally will allow a period of more
than 120 days for comments.
A commenter noted that the IASB's standard-setting process could
be improved through prompt consideration to keep standards current
and reflect emerging accounting issues and changing business
practices. The commenter also noted that in rare circumstances, the
IASB may need to shorten its due process period in order to achieve
a timely solution.\139\
---------------------------------------------------------------------------
\139\ See FRC.
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The Handbook allows for the IASB to have a shorter period of
consultation, if required, of 30 days. Effective March 1, 2010, the
Trustees revised their Constitution to include a provision to allow
them, in exceptional circumstances, to authorize a shorter due
process period. Authority would be given only with the approval of
75 percent of the Trustees after the IASB had made a formal request.
The due process periods could be reduced but never dispensed with
completely.
Recently, the FCAG addressed situations in which it may be
appropriate for the Boards to expedite due process. The FCAG Final
Report urged the Boards to adequately define the circumstances under
which it is appropriate to act on the basis of expedited due process
and develop procedures to ensure that, in such circumstances, the
maximum consultation practicable is obtained.
The Staff believes that the standard-setting process requires a
careful balance between timely resolution of emerging issues and
sufficient due process. The Staff will analyze for the Commission's
benefit the extent to which the IASB balances timely resolution of
emerging issues and due process so as to support a Commission
decision regarding whether to incorporate IFRS into the financial
reporting system for U.S. issuers. Specifically, the Staff will
review the IASB's practices, as compared to the requirements
detailed in relevant IFRS Foundation and IASB documents and
constituent expectations, to assess the IASB's ability to resolve
emerging issues in a timely and effective manner without
compromising due process.
3. Objectivity
The Monitoring Board, of which the SEC Chairman is a member,
recently stated that ``[c]onfidence in the quality and integrity of
the standards depends upon independence and transparency in the
standard setter's due process.'' \140\ The Monitoring Board
statement expressed the view that robust participation by all
interested parties is an essential element of due process.
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\140\ Statement of the Monitoring Board for the International
Accounting Standards Committee Foundation on Principles for
Accounting Standards and Standard Setting (September 22, 2009).
(available at: http://www.iosco.org/monitoring_board/pdf/Monitoring_Board_of_IASCF_Statement_22092009.pdf)
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Commenters expressed concerns regarding whether the independence
of the IASB recently has been compromised.\141\ A commenter further
questioned whether the IFRS Foundation and the IASB have the ability
and infrastructure to confront political pressure from governments
around the world.\142\
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\141\ See, e.g., BEP, CFA, and ITAC.
\142\ See MetLife, Inc. (``MetLife'').
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Similarly, the FCAG observed that:
``[T]o develop standards that are high quality and unbiased,
accounting standard setters must enjoy a high degree of independence
from undue commercial and political pressures, but they must also
have a high degree of accountability through appropriate due
process, including wide engagement with stakeholders and oversight
conducted in the public interest.\143\
\143\ See FCAG Final Report.
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The IASB relies on a number of practices and other factors to
ensure that it considers a diversity of views, including:
The IASB's meetings are open to public observers and
broadcast over the internet.
Meeting materials, comment letters received, and staff
summaries of comment letters on discussion papers and exposure
drafts are publicly available on the IASB Web site.\144\
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\144\ See the IASB's Web site at http://www.iasb.org for more
information on IASB process.
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The IASB is assisted on IFRS interpretive matters by
its IFRS Interpretations Committee (formerly called the
``International Financial Reporting Interpretations Committee,'' or
``IFRIC'').\145\
---------------------------------------------------------------------------
\145\ The IFRS Interpretations Committee interprets IFRS and
reviews accounting issues that are likely to receive divergent or
unacceptable treatment in the absence of authoritative guidance,
with a view to reaching consensus on the appropriate accounting
treatment. The IFRS Interpretations Committee is comprised of
fourteen voting members, appointed by the IFRS Foundation Trustees
for renewable terms of three years, and two observers (IOSCO and the
European Commission). Interpretations by the IFRS Interpretations
Committee are ratified by the IASB prior to becoming effective.
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The IASB consults with the IFRS Advisory Council on
single projects with a particular emphasis on practical application
and implementation issues.\146\
---------------------------------------------------------------------------
\146\ In 2008, the Trustees agreed to change the membership
structure of the SAC, so that members would serve primarily as
representatives of organizations. The Trustees believe that this
adaptation of the IFRS Advisory Council will enable the IASB to
receive views reflecting a wider range of interested parties and
would give greater authority to views received. The Commission also
participates as an observer of the IFRS Advisory Council.
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The IASB cooperates with national accounting standard
setters and other official bodies concerned with standard setting in
order to promote the convergence in accounting standards around the
world.\147\
---------------------------------------------------------------------------
\147\ For additional information, see IASB, Statement of Best
Practice: Working Relationships between the IASB and other
Accounting Standard-Setters (February 2006). (available at: http://www.iasb.org/NR/rdonlyres/8F20428C-BC3C-4CFE-A194-4386174C949D/0/SOBPFebruary2006final.pdf)
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The due process of the IASB is subject to the active
oversight of the Trustee Due Process Oversight Committee.
The Staff will analyze for the Commission's benefit the extent
to which the
[[Page 9507]]
IASB's standard-setting process is independent and objective.
Specifically, in conjunction with the other steps in this section
related to the oversight, composition, and funding of the IFRS
Foundation and the IASB, the Staff will review the IASB's practices,
as compared to the requirements detailed in relevant IFRS Foundation
and IASB documents and constituent expectations, to assess the
adequacy of the IASB's independence and objectivity during recent
standard-setting efforts.
III. Investor Understanding and Education Regarding IFRS
A. Introduction
Incorporation of IFRS into the financial reporting system for
U.S. issuers requires consideration of the impact on investors. This
consideration includes focus on the extent to which the accounting
standards and the standard-setting process promote the reporting of
transparent and useful financial information to support investors in
their investment decision-making process. In addition, this
consideration requires an assessment of investor understanding and
education regarding IFRS, as the main benefits to investors of a
single set of high-quality globally accepted accounting standards
would be realized only if investors understand and have confidence
in the basis for the reported results.
Investor considerations regarding IFRS and investor confidence
in IFRS and its standard setting are discussed in more detail in
sections I and II, respectively. This section focuses on investor
understanding and education regarding IFRS. In particular, should
the Commission determine in the future to incorporate IFRS into the
financial reporting system for U.S. issuers, transitional
considerations related to investor understanding and education
regarding IFRS require evaluation to assess the scope of, timing of,
and approach to changes that would be necessary for effective
incorporation.
B. Investor Understanding and Education
IFRS currently differs from U.S. GAAP in a number of areas;
consequently, incorporation of IFRS into the financial reporting
system for U.S. issuers may require significant investor education
regarding IFRS. However, as noted by one commenter, many U.S.
investors already possess some understanding of IFRS due to global
industry focus, cross-border investment decisions, and investments
in foreign private issuers.\148\ Moreover, through the convergence
process undertaken by the Boards, we expect the differences between
the two sets of standards should become fewer and narrower. As part
of this Work Plan, the Staff will consider U.S. investors' current
familiarity with IFRS and how they currently become educated about
changes to accounting standards, in order to better assess the
extent of investor educational effort necessary to effectively
incorporate IFRS into the financial reporting system for U.S.
issuers.
---------------------------------------------------------------------------
\148\ See EY.
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Because standard setters are continually improving accounting
standards, mechanisms already exist for investors to become educated
about the effects of changes to the accounting standards. By
considering the general education process currently used by
investors in understanding changes to U.S. GAAP, the Staff will
evaluate how this process could apply to investor education with
respect to IFRS in preparation for its potential incorporation into
the financial reporting system for U.S. issuers. In addition, the
staff will consider whether additional educational efforts are
needed.
Existing mechanisms to educate investors traditionally are
considered in the context of education after a standard has been
developed. Also important, however, is investor education during the
standard-setting process, which may occur in two ways. First, active
investor outreach by the standard setters may increase both the
extent and quality of understanding of new standards. In the past,
both Boards have used a number of tools to facilitate investor,
issuer, and auditor education about new standards, including
education sessions, roundtables, and Web casts. Second, the Boards'
convergence projects will be completed in accordance with their due
process procedures, providing investors with time to become familiar
with the new converged standards as they are developed. The Staff
believes the effectiveness of these two areas in educating investors
during the standard-setting process needs to be evaluated.
The Staff will analyze for the Commission's benefit how to
promote investor understanding of IFRS, as well as the existing
mechanisms to educate investors about changes in the accounting
standards, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will:
Conduct research aimed at understanding U.S. investors'
current knowledge of IFRS and preparedness for incorporation of IFRS
into the financial reporting system for U.S. issuers.
Gather input from various investor groups to understand
how investors educate themselves on changes in accounting standards
and the timeliness of such education.
Consider the extent of, logistics for, and estimated
time necessary to undertake changes to improve investor
understanding of IFRS and the related education process to ensure
investors have a sufficient understanding of IFRS prior to potential
incorporation.
IV. Regulatory Environment
A. Introduction
In addition to filing financial statements with the Commission,
U.S. issuers commonly provide financial information to a wide
variety of other parties for different purposes. While the federal
securities laws provide the Commission with the authority to
prescribe accounting principles and standards to be followed by
public companies and other regulated entities that file financial
statements with the Commission, the provision and content of
information to other regulators generally is not determined by the
Commission.\149\ However, these other regulators frequently rely on
U.S. GAAP as a basis for their regulatory reporting regimes.
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\149\ See Proposed Roadmap.
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Therefore, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers, transitional considerations related to the role of
financial reporting in various regulatory regimes and how such
incorporation would affect issuers, investors, and others in those
contexts, require evaluation to assess the magnitude and logistics
of changes that would be necessary for effective incorporation.
Accordingly, this section explores considerations related to the
following:
Manner in which the SEC fulfills its mission;
Industry regulators;
Federal and state tax impacts;
Statutory dividend and stock repurchase restrictions;
Audit regulation and standard setting;
Broker-dealer and investment company reporting; and
Public versus private companies.
B. Manner in Which the SEC Fulfills its Mission
Incorporation of IFRS into the financial reporting system for
U.S. issuers may affect the manner in which the Commission fulfills
its mission in two ways. First, the Commission must consider how to
incorporate IFRS into its rules and regulations and Staff
application guidance, to the extent they refer to accounting
standards and requirements. Second, as stated in the Commission's
2003 Policy Statement:
``The federal securities laws set forth the Commission's broad
authority and responsibility to prescribe the methods to be followed
in the preparation of accounts and the form and content of financial
statements to be filed under those laws (citations omitted), as well
as its responsibility to ensure that investors are furnished with
other information necessary for investment decisions. To assist it
in meeting this responsibility, the Commission historically has
looked to private-sector standard-setting bodies designated by the
accounting profession to develop accounting principles and
standards.''
Commenters questioned how a move to IFRS would affect the
Commission's relationship with the standard setter. For example,
some questioned whether, under securities law, as amended by the
Sarbanes-Oxley Act, the SEC has the ability to designate the IASB as
the U.S. standard setter.\150\ If the IASB were designated as the
U.S. standard setter, commenters observed that the Proposed Roadmap
is unclear as to how the Commission would exercise oversight of the
IASB. Accordingly, commenters urged the Commission to determine how
it would react in a crisis situation and how the Commission would
protect U.S. investors if the IASB did not address U.S.-specific
issues in a timely
[[Page 9508]]
manner.\151\ For example, some commenters indicated the Commission
should retain the authority to interpret IFRS.\152\
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\150\ See, e.g., American Bar Association Business Law Section
(``ABA Committee'').
\151\ See, e.g., Darden Restaurant, Inc. (``Darden'') and Intel
Corporation (``Intel'').
\152\ See, e.g., ABA Committee and Travelers.
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At the same time, other commenters have cautioned against a
``U.S. version of IFRS,'' \153\ as follows:
\153\ See section I.D for further discussion regarding
jurisdictional variations of IFRS.
---------------------------------------------------------------------------
``We do not believe the Commission should supplement any missing
accounting or disclosure requirements or the financial statements
would not be considered to be prepared in accordance with IFRS as
issued by the IASB. We believe any additional disclosures the
Commission would consider requiring should be included outside of
the audited financial statements.'' \154\
\154\ PPL. See also, e.g., Cisco Systems, Inc. (``Cisco'') and
Liberty Global.
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In response to these concerns, the 2010 Statement states:
``[The Commission] believe[s] the FASB will continue to play a
critical and substantive role in achieving the goal of global
accounting standards. The FASB is the accounting standard setter for
the U.S. capital markets, and it should continue to work with the
IASB to improve accounting standards. Moreover, that role would
remain critical after adoption of global standards.''
The Staff will analyze for the Commission's benefit the impact
on Commission rules and procedures and potential approaches for the
ongoing role of the FASB in accounting standard setting and
interpretation, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will:
Analyze references to accounting standards and
requirements in existing Commission rules and interpretations and
Staff application guidance to identify the extent of, logistics for,
and estimated time necessary to implement any changes prior to such
incorporation.
Consider how, if at all, such incorporation would
affect the nature, manner, or frequency in which the Commission and
its Staff provide interpretative accounting guidance and enforce
accounting standards, and the extent of, logistics for, and
estimated time necessary to implement any changes.
Analyze approaches to the FASB's ongoing role in
accounting standards used in the United States, and the extent of,
logistics for, and estimated time necessary to undertake these
approaches.
C. Industry Regulators
In the Proposed Roadmap, the Commission observed:
``Various federal and state regulators, including regulators of
financial institutions, insurance companies and public utilities,
are provided with periodic financial information on an on-going
basis. For example, U.S. GAAP financial statements frequently are
used as the basis for determining capital requirements for financial
institutions.''
Due to the prevalence of financial information provided to
different U.S. regulators, incorporation of IFRS into the financial
reporting system for U.S. issuers may significantly affect different
regulators and issuers subject to those regulators' compliance
requirements. As such, it is important to identify the full range of
regulatory regimes that rely on information developed for financial
reporting purposes.
A number of commenters suggested that the Commission determine
the extent to which industry regulators would continue to accept
financial statements prepared for SEC reporting purposes as a
starting point for regulatory filings.\155\ Otherwise, commenters
cautioned that a move to IFRS for financial reporting purposes risks
creating costly dual-reporting requirements for issuers.\156\
Further, if regulators continue to accept reporting prepared for SEC
purposes, any changes in the reporting as a result of incorporating
IFRS could have regulatory impacts. The Staff recognizes that
acceptance of IFRS-based financial statements by industry regulators
may have consequences on issuers and others that require analysis.
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\155\ See, e.g., Office of the Comptroller of the Currency,
Board of Governors of the Federal Reserve System, Federal Deposit
Insurance Corporation, National Credit Union Administration, and
Office of Thrift Supervision (collectively, ``BankReg''), Committee
of Annuity Insurers, Dominion Resources Services (``Dominion''),
First Data Corporation (``First Data''), and National Association of
Regulatory Utility Commissioners (``NARUC'').
\156\ See, e.g., Boeing and Honeywell.
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The Staff will analyze for the Commission's benefit the effects
on issuer compliance with industry regulatory requirements, should
the Commission determine in the future to incorporate IFRS into the
financial reporting system for U.S. issuers. Specifically, the Staff
will:
Analyze the effects on issuer compliance with industry
regulatory requirements.
Consider the impact of a change in SEC reporting on
industry regulators.
Analyze constituent concerns associated with any
potential changes, or lack thereof, to regulatory regimes.
D. Federal and State Tax Impacts
Incorporation of IFRS into the financial reporting system for
U.S. issuers also could affect federal and state tax regulations
(e.g., Internal Revenue Code).\157\ As explained in the Proposed
Roadmap:
\157\ 26 U.S.C. 1 et seq. [1986.]
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``As the Internal Revenue Code has developed over an extended
period of time with existing U.S. GAAP as the predominant set of
accounting standards used in the United States, certain interactions
exist between certain provisions of U.S. GAAP and income tax
requirements. For example, the Internal Revenue Code has conformity
provisions related to the method of accounting for inventory for tax
reporting purposes and the method used for reporting to shareholders
(and other owners or beneficiaries) or for credit purposes.\158\
IFRS does not allow for the use of last-in, first-out, or LIFO,
method of accounting for inventory. As a result, a company that
reports in accordance with IFRS would be required to use a method of
accounting for inventory that is acceptable under IFRS, for example
the first-in, first-out, or FIFO, method. U.S. issuers changing to
FIFO for financial reporting purposes may experience a change in
taxable income based on the difference between inventory valued on a
LIFO basis and on a FIFO basis.''
\158\ See Section 472 of the Internal Revenue Code (26 U.S.C.
472).
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If federal and state tax regulators maintained their current tax
codes, companies may experience a significant increase in the number
of book-tax differences they would be required to track upon
incorporation of IFRS into the financial reporting system for U.S.
issuers. Several commenters expressed that because of the high cost
that otherwise would be incurred in maintaining two sets of records,
the U.S. Internal Revenue Code, as well as state and local tax codes
and related regulations, would need to be modified.\159\
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\159\ See, e.g., Allergan, Inc. and tw telecom.
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Alternatively, if federal and state tax regulators continued to
align their tax codes with reporting for SEC purposes, companies may
experience significant changes to their expected tax liabilities.
Commenters expressed that the SEC should work with the Internal
Revenue Service and other tax authorities to mitigate the LIFO
transitional issue,\160\ as well as address the transfer pricing
arrangements and franchise tax considerations that may be affected
in the transition.\161\
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\160\ See, e.g., KPMG, The LIFO Coalition (``LIFO''), and
National Association of Wholesaler-Distributors.
\161\ See KPMG.
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The Staff will analyze for the Commission's benefit the effects
on federal and state tax regulations, as well as issuers subject to
such regulations, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will:
Analyze the effects on federal and state tax
regulations, as well as issuers subject to such regulations.
Consider the impact of a change in SEC reporting on
federal and state tax regulators.
Analyze constituent concerns associated with any
potential changes, or lack thereof, to federal and state tax
regulation.
E. Statutory Dividend and Stock Repurchase Restrictions
Certain legal standards may be tied to amounts determined for
financial reporting purposes. For example, companies may declare
dividends to or repurchase stock from shareholders. While the
amount, timing, and manner of payment of dividend distributions and
stock repurchases are typically determined by the companies' boards
of directors, the amount available may be restricted by state
statute. For example, some jurisdictions provide that dividends may
only be paid from retained earnings or may be paid from current
earnings despite an accumulated deficit.
To the extent that jurisdictions base legal standards on amounts
determined for
[[Page 9509]]
financial reporting purposes, incorporation of IFRS into the
financial reporting system for U.S. issuers could affect a company's
ability to undertake certain actions and an investor's expectations
in that regard. In addition, to the extent that legal standards do
not change based on changes in SEC reporting, companies would need
to maintain two sets of records. Accordingly, the Staff will analyze
for the Commission's benefit the effects on such legal standards,
should the Commission determine in the future to incorporate IFRS
into the financial reporting system for U.S. issuers. Specifically,
the Staff will:
Analyze the effect of such incorporation on legal
standards, such as a company's ability to pay dividends or
repurchase stock, on issuers and investors.
Consider the impact of a change in SEC reporting on
state statutes in this regard.
Analyze constituent concerns associated with any
potential changes, or lack thereof, to such state statutes.
F. Audit Regulation and Standard Setting
Another regulatory body that may be affected by incorporation of
IFRS into the financial reporting system for U.S. issuers is the
Public Company Accounting Oversight Board (``PCAOB''), which is
responsible for overseeing public company audit firms and
establishing audit, quality control, ethics, and independence
standards used by those firms.\162\ The Proposed Roadmap and
commenters raised two primary considerations related to the PCAOB.
First, commenters questioned whether a move to global accounting
standards should be coupled with a move to global auditing standards
in the United States, for example, through convergence of PCAOB
standards with or adoption of auditing standards issued by the
International Accounting and Assurances Standards Board.\163\
Second, commenters noted that PCAOB auditing standards may require
better alignment with IFRS. For example, one commenter expressed a
general concern that there would be a mismatch between the less
prescriptive standards in IFRS and U.S. auditing standards.\164\ In
addition, the Proposed Roadmap identified a general need for
conforming amendments to PCAOB standards where they refer to current
U.S. GAAP literature.
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\162\ See Section 101 of the Sarbanes-Oxley Act (15 U.S.C.
7211).
\163\ See, e.g., CalPERS and FEE.
\164\ See AAA-FASC.
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Commenters also provided specific examples of PCAOB auditing
standards that may require better alignment with IFRS. For example,
commenters suggested that the PCAOB issue additional guidance for
auditors engaged in auditing market risk information included in the
audited financial statements pursuant to IFRS 7 (currently U.S.
issuers provide similar information outside the financial statements
pursuant to Item 305 of Regulation S-K).\165\
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\165\ See, e.g., KPMG.
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Further, the Proposed Roadmap discussed the audit of legal
contingencies as follows:
``One of the conditions under IFRS for recognizing a provision
for a legal contingency is that it is more likely than not that an
obligation exists (footnote omitted). This recognition threshold is
lower than the current recognition threshold in U.S. GAAP, resulting
in the potential for an earlier income statement recognition of
costs associated with litigation (footnote omitted). Concerns have
been raised about an auditor's ability to corroborate the
information furnished by management related to litigation, claims,
and assessments by obtaining an audit inquiry letter from a client's
attorney.'' \166\
\166\ As further discussed in the Proposed Roadmap:
Some believe that changes to the American Bar Association
Statement of Policy Regarding Lawyers' Responses to Auditors'
Requests for Information may be necessary. See AU section 337C. The
Statement of Policy, commonly referred to as the ``Treaty,''
recognizes the professional responsibilities of attorneys and
auditors and seeks to preserve confidentiality while providing the
necessary level of assurance for the audit. The Treaty recognizes
that the confidentiality of communications between an attorney and a
client may be impaired by the disclosure of the substance of such
communications to third parties, including auditors. By describing
thresholds for disclosure and limitations on responses, the Treaty
sets the scope of the attorney's responses to audit requests for
information on legal matters. Some believe that the thresholds and
limitations described in the Treaty are inconsistent with certain
provisions within IFRS.
See also, e.g., ABA Committee (echoed the Commission's
statements in the Proposed Roadmap regarding the audit of legal
contingencies).
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Notwithstanding the above examples of areas where PCAOB auditing
standards may require better alignment with IFRS, most auditors that
responded to the Proposed Roadmap did not have concerns regarding
their ability to opine on financial statements prepared under
IFRS.\167\
---------------------------------------------------------------------------
\167\ See, e.g., CAQ (stated that the U.S. auditing profession
stands ready to support the use of IFRS by all U.S. issuers,
including early adopters under an option), J.H. Cohn LLP (confirmed
its readiness to prepare for audits of IFRS financial statements
once the SEC reaches a decision), and PwC.
---------------------------------------------------------------------------
The Staff will analyze for the Commission's benefit the effects
on audit standard setting and auditor requirements, should the
Commission determine in the future to incorporate IFRS into the
financial reporting system for U.S. issuers. Specifically, the Staff
will:
Consider the impact of such incorporation on PCAOB
standards.
Consider the extent of, logistics for, and estimated
time necessary to undertake any changes to the auditing standards.
G. Broker-Dealer and Investment Company Reporting
The Proposed Roadmap excluded investment companies registered
under the Investment Company Act of 1940 and certain other regulated
entities that are required to file or furnish certain types of
financial reports (e.g., broker-dealers).
Some commenters expressed that no issuers should be exempt from
the scope of the Proposed Roadmap \168\ and that the final Roadmap
should include a plan so that all filings with the SEC are based on
IFRS and allow adequate time for the IASB and SEC to consider the
appropriate financial reporting model for these entities.\169\
---------------------------------------------------------------------------
\168\ See, e.g., BDO Seidman, LLP (``BDO''), CAQ, and Verizon
Communications, Inc.
\169\ See, e.g., EY.
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Alternatively, some commenters supported the exclusion of
investment companies from the rule proposal.\170\ Another commenter
expressed the view that the Commission has not sufficiently
articulated its rationale for excluding investment companies and
other regulated entities from the scope of the Proposed Roadmap and
would agree with excluding these issuers ``only if there are unique
considerations surrounding these entities that could delay the
Commission's decision making process.''\171\
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\170\ See, e.g., AICPA and Investment Company Institute (who
expressed that convergence in accounting standards as applied to
investment companies and resolution of conflicts between IFRS and
Article 6 of Regulation S-X should be prerequisites to a move to
IFRS).
\171\ GT.
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Finally, commenters also expressed concerns regarding costs
imposed by the reduced comparability introduced by the continued use
of another basis of accounting (e.g., for private companies (see
below), and/or Investment Company Act registrants).\172\ As another
example, excluding broker-dealer reporting could result in a broker-
dealer subsidiary being required to report to the Commission under
one set of standards with the public holding company that
consolidates that subsidiary required to report under another. Also,
to the extent reporting results changed if IFRS were to be
incorporated for these entities, such a change could impact
compliance with financial responsibility rules, such as net capital
requirements.
---------------------------------------------------------------------------
\172\ See, e.g., Private Equity Council.
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In light of the different views noted above, the Staff will
analyze for the Commission's benefit possible approaches for
financial reporting requirements for broker-dealers and investment
companies, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will:
Assess the effects of such incorporation on broker-
dealers, investment companies, and investors, including whether IFRS
includes sufficient standards, and the extent of, logistics for, and
estimated time necessary to undertake any changes, should broker-
dealers and investment companies be included in the scope any
potential Commission decision.
Evaluate the effect on investors of excluding broker-
dealers and investment companies from the scope of any potential
Commission decision.
H. Public Versus Private Companies
The Proposed Roadmap focused only on companies that file with
the Commission. However, existing U.S. GAAP also is used by private
companies.
Commenters expressed concern over the impact a move to IFRS
would have on U.S.
[[Page 9510]]
private companies.\173\ One concern raised in the Proposed Roadmap
and echoed by commenters was that, to the extent two sets of
standards existed, a requirement to file different financial
statements with the Commission would increase costs of capital for
private companies considering an initial public offering.\174\ It
could also impact the evaluation of business combinations between
public and private companies. Some commenters acknowledged that
private company reporting is largely outside of the mandate of the
Commission, but stated that the Commission should assess the
consequences its decision on IFRS would have to this large and
important part of the U.S. economy. Specifically, certain of these
commenters believed that if a ``dual-GAAP'' system emerged for
private versus public companies, this could adversely affect the
efficiency of the U.S. capital markets.\175\ Even if U.S. private
companies were to report under IFRS, a ``dual-GAAP'' system may
evolve, if private companies followed IFRS for small- and medium-
sized entities (``SMEs''), which:
\173\ See, e.g., The New York State Society of Certified Public
Accountants (``NY CPAs'') and Ohio CPAs.
\174\ See, e.g., ABA Committee, Center for Capital Markets
Competitiveness (``CCMC''), Davey Tree, First Data, and ITAC.
\175\ See, e.g., CA CPAs and CIGNA Corporation.
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``[I]s a self-contained standard of about 230 pages tailored for
the needs and capabilities of smaller [private] businesses. Many of
the principles in full IFRSs for recognising and measuring assets,
liabilities, income and expenses have been simplified, topics not
relevant to SMEs have been omitted, and the number of required
disclosures has been significantly reduced. To further reduce the
reporting burden for SMEs revisions to the IFRS will be limited to
once every three years.'' \176\
\176\ ``IASB publishes IFRS for SMEs,'' IASB press release (July
9, 2009). (available at: http://www.iasb.org/News/Press+Releases/IASB+publishes+IFRS+for+SMEs.htm)
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The Staff will analyze for the Commission's benefit the effects
on U.S. private companies, should the Commission determine in the
future to incorporate IFRS into the financial reporting system for
U.S. issuers. Specifically, the Staff will:
Analyze the effects of such incorporation for U.S.
issuers on private companies, auditors, and investors.
Assess the extent of, logistics for, and estimated time
necessary to undertake changes to accommodate any resulting
implications on private companies.
V. Impact on Issuers
A. Introduction
Incorporation of IFRS into the financial reporting system for
U.S. issuers would significantly affect preparers of financial
statements--the several thousand issuers that file reports with the
Commission. Numerous commenters expressed the view that the costs,
effort, and time involved with a move to IFRS would be
considerable,\177\ with many asserting that the benefits of such a
move may not outweigh those costs.\178\ A number of commenters
further asserted that the transition time articulated in the
Proposed Roadmap was not sufficient \179\ and may cause confusion,
thereby damaging investor confidence.\180\
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\177\ See, e.g., Phil Ameen (``Ameen''), Chevron Corporation,
Eli Lilly, Shawn S. Fahrer, Hot Topic Inc. (``Hot Topic''), Intel,
Graduating Seniors--Jacksonville University (Georgia), Kohl's
Department Stores, Inc. (``Kohl's''), Molson Coors Brewing Company,
NARUC, PPL, Psoras, Mark A. Supin, SIFMA, U.S. Congressman Lee
Terry, Tuesday Morning; and U.S. Congressman Zach Wamp.
\178\ See, e.g., Davey Tree, Exxon Mobil Corporation (``Exxon
Mobil''), Marriott, McDonald's, Pfizer Inc. (``Pfizer''),
Plantronics, Inc. (``Plantronics''), Regions Financial Corp., and tw
telecom.
\179\ See, e.g., ABA Committee, American Insurance Association
(``AIA''), AICPA, BankReg, Best Buy Co., Inc., CAQ, Cisco, Cymer
Inc., Deloitte, EY, Fannie Mae, Graybar Electric Company, Inc.,
ICAEW, IMA, KPMG, National Association of Real Estate Investment
Trusts, NARUC, Progress Energy, Inc., PwC, Reznick Group, P.C.,
TransCanada Corporation, and XenoPort.
\180\ See, e.g., Association of the Bar of the City of New York,
Community Health, CSX Corporation, and Plantronics.
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Accordingly, this aspect of the Work Plan explores the magnitude
and logistics of changes that issuers would need to undertake to
effectively incorporate IFRS into the financial reporting system for
U.S. issuers, should the Commission determine in the future to
incorporate IFRS into the financial reporting system for U.S.
issuers in the following areas:\181\
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\181\ The human resource impact on issuers is discussed
separately in section VI.
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Accounting systems, controls, and procedures;
Contractual arrangements; and
Corporate governance.
The Work Plan will also consider the effect of such
incorporation on the following:
Accounting for litigation contingencies; and
Smaller issuers versus larger issuers.
B. Accounting Systems, Controls, and Procedures
U.S. issuers may be required to significantly modify their
accounting systems, controls, and procedures, if the Commission
incorporates IFRS into the financial reporting system. As stated in
the Proposed Roadmap:
``Use of any new accounting standards requires changes to
financial reporting systems and procedures to identify, collect,
analyze and report financial information and the corresponding
controls. Changing numerous accounting standards at the same time,
regardless of the starting point, would require numerous changes in
a company's policies and procedures and system of internal
controls.''
For example, commenters expressed the need for:
A complete survey of accounting policies as a first
step because IFRS explicitly requires that all similar transactions
in the enterprise (including affiliates) be accounted for
similarly;\182\
---------------------------------------------------------------------------
\182\ See, e.g., Ameen.
---------------------------------------------------------------------------
More detailed company policies, as IFRS is viewed as
less developed than U.S. GAAP;\183\ and
---------------------------------------------------------------------------
\183\ See, e.g., Air Products, Community Health, Darden, and
Mead Westvaco.
---------------------------------------------------------------------------
Changes to systems, including ledgers and related
internal controls, and related testing of such changes,\184\
particularly to ensure effectiveness for reporting purposes under
section 404 of the Sarbanes-Oxley Act.
---------------------------------------------------------------------------
\184\ See, e.g., Ameen.
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Commenters noted that the burden of changes to accounting
systems, controls, and procedures would be exacerbated in a number
of ways. First, issuers may be required to maintain dual-accounting
systems for a period of time (e.g., (1) for periods reported under
existing U.S. GAAP after the opening balance sheet date under IFRS
1, First-time Adoption of International Financial Reporting
Standards, but before the initial filing under a system
incorporating IFRS, (2) if the SEC were to require supplemental U.S.
GAAP information for a period of time to aid in transition, (3) if
such incorporation were effective in the financial statements of
consolidated entities prior to those of the consolidated entities'
stand-alone subsidiaries, and (4) if other regulators continued to
require reporting based on U.S. GAAP). One commenter stated:
``Maintaining dual reporting presents U.S. issuers with a
significant burden since all of the processes, controls, and checks
must occur twice for each transaction. Indeed, it is likely that the
Sarbanes Oxley control testing requirements could nearly double
during the period of parallel reporting.'' \185\
\185\ UTC.
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Second, changes to accounting systems, controls, and procedures
require sufficient lead time. However, if IFRS continues to change
at a rapid pace during this lead time, U.S. issuers will experience
additional challenges in planning for incorporation of IFRS into the
financial reporting system. As such, some commenters expressed the
need for a ``stable platform'' for a period of time during which
accounting standards do not change.\186\ However, a ``stable
platform'' may constrain the standard setters' ability to address
emerging issues.
---------------------------------------------------------------------------
\186\ See, e.g., Eli Lilly, Exxon Mobil, EY, and SIFMA.
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Third, some commenters asserted that certain industries would be
disproportionately impacted by incorporation of IFRS into the
financial reporting system for U.S. issuers because of differences
between existing U.S. GAAP and IFRS that are specific to their
circumstances. One commenter stated that financial institutions will
need sufficient time to prepare for conversion to IFRS, given the
extent of systems changes and communications that will need to
occur.\187\ Other commenters expressed concerns about specific
differences between U.S. GAAP and IFRS for which they believed the
accounting under IFRS would be onerous.\188\
---------------------------------------------------------------------------
\187\ See ICAEW.
\188\ See, e.g., Mead Westvaco, Plum Creek Timber Company, Inc.,
Potlatch Corporation, and Rayonier Inc. (who expressed concerns
regarding the costs of complying with the requirement in
International Accounting Standard 41, Agriculture, to fair value
timberlands). See also, e.g., Hot Topic, J.C. Penney Company, Inc.,
Kohl's, and Tuesday Morning (who expressed concerns about the IFRS
disallowance of the retail inventory method).
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[[Page 9511]]
The Staff will analyze for the Commission's benefit the effects
on U.S. issuers' accounting systems, controls, and procedures,
should the Commission determine in the future to incorporate IFRS
into the financial reporting system for U.S. issuers. Specifically,
the Staff will:
Determine the extent of, logistics for, and estimated
time necessary to undertake changes to issuer accounting systems,
controls, and procedures to facilitate such incorporation.
Consider the implications of a ``stable platform,''
including the length of time and means of addressing emerging
issues.
C. Contractual Arrangements
The Proposed Roadmap also noted that companies' contracts often,
either explicitly or implicitly, require the use of U.S. GAAP or are
based off of current U.S. GAAP reporting. For example, companies may
have issued debt instruments which include financial covenants based
on U.S. GAAP or require periodic reporting of financial statements
prepared under U.S. GAAP. Similarly, lease contracts and employee
compensation plans may be based on metrics computed using U.S. GAAP
financial information.
Commenters indicated that a move to IFRS for U.S. issuers may
require contract renegotiation or the preparation of two sets of
financial statements, depending on how IFRS is incorporated in the
U.S. capital markets.\189\ In addition, performance under the
existing agreements could be affected if the reported information
changes. Accordingly, the Staff will analyze for the Commission's
benefit the effects on contractual arrangements, should the
Commission determine in the future to incorporate IFRS into the
financial reporting system for U.S. issuers. Specifically, the Staff
will:
---------------------------------------------------------------------------
\189\ See, e.g., AIA, CCMC, Hot Topic, JP Morgan, Psoras, and
Tuesday Morning.
---------------------------------------------------------------------------
Assess the types and pervasiveness of contractual
arrangements that would be affected by such incorporation and the
manner in which they would be affected.
Determine the costs, ability, plans, and estimated time
required to address concerns regarding affected contractual
arrangements.
D. Corporate Governance
Incorporation of IFRS into the financial reporting system for
U.S. issuers may affect an issuer's compliance with corporate
governance requirements. For example, in 2003, as required by the
Sarbanes-Oxley Act, the SEC adopted rules that require a registrant
to disclose whether it has at least one ``audit committee financial
expert'' (as defined) serving on its audit committee and, if so, the
name of the expert and whether the expert is independent of
management.\190\ Those rules also indicate the education and
experience through which those attributes must have been acquired.
---------------------------------------------------------------------------
\190\ See Disclosure Required by Sections 406 and 407 of the
Sarbanes-Oxley Act of 2002, Release No. 33-8177 (January 23, 2003)
[68 FR 5110 (January 31, 2003)].
---------------------------------------------------------------------------
Listing rules for U.S. securities exchanges also have
requirements regarding audit committee competence. One commenter
explained:
``[R]ules of the NYSE, NASDAQ, and AMEX require members of the
audit committee of each listed company to be financially literate
and each listed company audit committee must have at least one
member who has accounting or related financial management expertise.
Many board members who currently meet the ``financial expertise''
qualifications are not likely to have had experience with IFRS or
its adoption as they have been trained in U.S. GAAP. If a company
adopts IFRS, its board is likely to need additional training in IFRS
in order to meet the level of financial expertise necessary for them
to carry out these functions and satisfy these requirements.'' \191\
\191\ Metlife.
---------------------------------------------------------------------------
Accordingly, incorporation of IFRS into the financial reporting
system may result in challenges for U.S. issuers in identifying
audit committee financial experts and in listing on securities
exchanges, as well as, more broadly, compliance with other aspects
of corporate governance. Further, similar to the potential effects
on compliance with other regulatory requirements, changes in
financial reporting could impact a company's compliance with certain
quantitative listing standards. The Staff will analyze for the
Commission's benefit the impact on compliance with corporate
governance standards, should the Commission determine in the future
to incorporate IFRS into the financial reporting system for U.S.
issuers. Specifically, the Staff will:
Determine the potential effects on corporate governance
and related concerns of such incorporation.
Determine possible approaches to address corporate
governance concerns and the extent of, logistics for, and estimated
time necessary to undertake these approaches.
E. Accounting for Litigation Contingencies
Commenters expressed concerns regarding the treatment of
litigation-related loss contingencies under IFRS. For example, the
ABA Committee asserted that accounting for such contingencies under
IFRS raises serious concerns by its use of a lower recognition
threshold than U.S. GAAP and its requirements to make additional
disclosures. Their concerns included ``avoidance of prejudice to
companies and their shareholders in our highly litigious society''
and erosions of the protections of attorney-client privilege and
work product. Other commenters expressed similar concerns, with one
noting:
``[T]he loss contingency disclosures required under IFRS are
similar to those proposed by the FASB in 2008. As these disclosures
were rejected for use in the U.S. primarily due to objections from
the legal community, it is likely that similar issues will arise if
IFRS becomes mandatory.'' \192\
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\192\ Dominion. See also, e.g., FPL and Pfizer. The Staff notes
that the FASB is in the process of re-deliberating loss contingency
disclosure requirements. See also section IV.E regarding concerns
related to the auditing of loss contingencies accounted for under
IFRS.
Incorporation of IFRS into the financial reporting system for
U.S. issuers requires careful consideration of the impact of
litigation contingency accounting and disclosure requirements under
IFRS on issuers and investors. Accordingly, the Staff will analyze
for the Commission's benefit the effects on accounting and
disclosure requirements for litigation contingencies under IFRS in
the U.S. legal environment, should the Commission determine in the
future to incorporate IFRS into the financial reporting system for
U.S. issuers. Specifically, the Staff will:
Discuss with issuers, the legal profession, and
investors concerns regarding accounting and disclosure requirements
for litigation contingencies under IFRS.
Determine possible approaches to address concerns
regarding accounting and disclosure requirements for litigation
contingencies under IFRS and the extent of, logistics for, and
estimated time necessary to undertake these approaches.
F. Smaller Issuers Versus Larger Issuers
Several commenters asserted that a move to IFRS would be
particularly burdensome for smaller U.S. issuers. For example, one
commenter included studies from two independent consultants
indicating that, while recognizing potential cost savings for some
large, multinational firms, a move to IFRS is likely to impose
substantial transition costs, including disproportionate costs on
smaller issuers.\193\ Conversely, one commenter stated that ``the
impact is expected to be very small and the majority of the impact
will occur in non-routine or one-off transactions which are
typically subject to significant scrutiny in any case.'' \194\
---------------------------------------------------------------------------
\193\ FAF. See also, e.g., Biotechnology Industry Organization,
Business Roundtable, CCMC, CRIFR, and IMA.
\194\ Xenoport.
---------------------------------------------------------------------------
In light of the above comments, the Staff will analyze for the
Commission's benefit the extent to which incorporation of IFRS into
the financial reporting system for U.S. issuers would affect smaller
issuers differently than larger issuers and the extent of, logistics
for, and estimated time necessary to undertake any changes, should
the Commission determine in the future to do so. Specifically, the
Staff will:
Determine the manner in which the impact of such
incorporation varies based on issuer size.
Determine possible approaches to mitigate concerns
regarding any disproportionate effects on smaller issuers of such
incorporation and the extent of, logistics for, and estimated time
necessary to undertake these approaches.
VI. Human Capital Readiness
A. Introduction
Should the Commission determine in the future to incorporate
IFRS into the financial reporting system for U.S. issuers,
transitional
[[Page 9512]]
considerations related to the readiness of all parties involved in
the financial reporting process, including investors (see section
III for further discussion), issuers, attorneys, auditors,
regulators, and educators require evaluation to assess the magnitude
and logistics of changes that would be necessary to effectively
incorporate IFRS into the financial reporting system for U.S.
issuers. Accordingly, this section explores considerations related
to:
Education and training; and
Auditor capacity.
B. Education and Training
In the Proposed Roadmap, the Commission noted that the education
and ongoing training of most accountants in the United States are
limited to or predominantly focused on the current provisions of
U.S. GAAP. As a result, the Commission acknowledged that many
parties likely would need comprehensive IFRS training, including:
Investors, as discussed in section III;
The personnel of issuers, including their accounting,
internal audit, and investor relations departments, and their
governing bodies, such as their audit committees and board of
directors;
Specialists, such as actuaries and valuation experts,
as they often are engaged by management to assist in measuring
certain assets and liabilities for financial reporting purposes;
Attorneys, who will need to understand financial
statements in order to, for example, advise on disclosures required
under the securities laws and provide legal representations to
external auditors;
External auditors;
Regulators, such as the Staff, PCAOB staff, and the
staff of other regulatory bodies; \195\
---------------------------------------------------------------------------
\195\ See, e.g., BankReg (noted that they ``collectively employ
thousands of examination and policy support personnel that will need
to be adequately trained in the use of IFRS if it is adopted before
convergence is achieved'').
---------------------------------------------------------------------------
State licensing bodies, professional associations, and
industry groups, who would need to integrate IFRS into their
training materials, publications, testing, and certification
programs (including the Uniform CPA Examination); and
Colleges and universities that would need to include
IFRS in their curricula.
In the Proposed Roadmap, the Commission observed that strategies
taken by those participants in markets where issuers already report
in accordance with IFRS might serve as examples of approaches to
increasing education and awareness of IFRS.
The Commission also expressed that the private sector may
respond to any increased demand for IFRS education by making
educational materials available.\196\ Since the Commission's
issuance of the Concept Release in August 2007, several of the
largest accounting firms in the United States have made more
material available to the public about IFRS generally, as well as
about the application of specific IFRS standards.\197\
---------------------------------------------------------------------------
\196\ See Proposed Roadmap.
\197\ These materials include publications (e.g., PwC's IFRS and
US GAAP: similarities and differences; EY's US GAAP v. IFRS The
basics: Oil and gas) and other IFRS-related education initiatives
(e.g., the KPMG IFRS Institute; Deloitte's IFRS University
Consortium; EY's Academic Resource Center; PwC's IFRS Video Learning
Center).
---------------------------------------------------------------------------
Commenters expressed mixed views in terms of the importance of
this issue, as well as timing for improvements in this area. Some
commenters expressed concerns about the challenges faced in training
and educating both existing and future practitioners.\198\ For
example, the nature of accounting education would require change, as
professionals and students would not only need training in IFRS, but
in utilizing judgment in the application of less prescriptive
standards and in understanding the economic substance of
transactions.\199\ Accordingly, commenters expressed the view that a
move to IFRS for U.S. issuers would be costly for educators,\200\
particularly if a dual-reporting system (e.g., due to different
systems for public versus private companies) evolved in the United
States.\201\ Commenters also asserted that educators would not be
ready in the near term \202\ and that work needs to begin
immediately.\203\ As such, some commenters recommended that the
Commission address how sufficient resources and incentives for
training would be achieved.\204\
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\198\ See, e.g., CalPERS, CFA, Fund Stockowner Rights, ITAC,
NASBA, NYCPAs, and Ohio CPAs.
\199\ See, e.g., London Ctr Int'l Corp Gov Law and Shyam Sunder.
\200\ See, e.g., AmerisourceBergen Corporation, Teresa P.
Gordon, and Thomas N. Tyson.
\201\ See, e.g., Travelers.
\202\ See, e.g., American Accounting Association, Financial
Accounting and Reporting Section, and Financial Reporting Policy
Committee (pointed to surveys of educators indicating concerns over
readiness).
\203\ See, e.g., ING Insurance Americas.
\204\ See, e.g., CalPERS and ICGN.
---------------------------------------------------------------------------
Others, however, were of the view that educators, issuers, and
other impacted parties would be prepared in time, particularly once
a date for moving to IFRS were established.\205\ One commenter
expressed that IFRS education and expertise will grow in the United
States anyway--even if the United States does not move to IFRS--
because of the ongoing increased foreign investment in the United
States.\206\
---------------------------------------------------------------------------
\205\ See, e.g., ACCA, Alcoa, CAQ, Dell Inc., EY, and PwC.
\206\ See Pepsi.
---------------------------------------------------------------------------
The Staff recognizes that education and training efforts to
facilitate incorporation of IFRS into the financial reporting system
for U.S. issuers could be significant. Accordingly, the Staff will
analyze for the Commission's benefit the sufficiency of the IFRS
education and training infrastructure and the extent of, logistics
for, and estimated time necessary to undertake changes, should the
Commission determine in the future to do so. Specifically, the Staff
will:
Evaluate the current level of IFRS expertise and extent
of IFRS education and training needs among constituents.
Consider the extent of, logistics for, and estimated
time to implement plans for future training among constituents.
C. Auditor Capacity
Incorporation of IFRS into the financial reporting system for
U.S. issuers could strain audit firm resources if sufficient
training and time are not provided. The Proposed Roadmap noted that
``[a]udit firms would need to consider elements of their systems of
quality control, such as their practices related to hiring,
assigning personnel to engagements, professional development and
advancement activities.'' An increase in the demand for IFRS
expertise may affect the availability of audit services, with
consequences on audit quality, cost, and audit firm concentration.
While some commenters expressed that moving to IFRS is likely to
have little or no effect on the availability of audit services and
audit quality,\207\ others expressed concerns about a likely
reduction in these areas, along with an increase in both internal
and external audit costs, due to IFRS being less comprehensive and
requiring more application of judgment.\208\ For additional
discussion regarding the impact of IFRS's comprehensiveness on its
auditability, see section I.C.
---------------------------------------------------------------------------
\207\ See, e.g., Deutsche Bank, UBS, and UTC.
\208\ See, e.g., Davey Tree.
---------------------------------------------------------------------------
Others commented that the consequences of a move to IFRS for
U.S. issuers on audit firms may differ based on audit firm size.
With respect to the large audit firms, commenters believed that a
move to IFRS for U.S. issuers is likely to have little or no effect
on the availability of audit services and audit quality.\209\ Two
large audit-firm commenters noted that they currently audit foreign
private issuers as well as subsidiaries of foreign multi-nationals
that report under IFRS.\210\ Further, they anticipated leveraging
personnel from other member firms in countries that have already
moved to IFRS.
---------------------------------------------------------------------------
\209\ See, e.g., BDO, Deloitte, EY, and PwC.
\210\ See Deloitte and PwC.
---------------------------------------------------------------------------
On the other hand, opinions were mixed on the impact of moving
to IFRS on ``smaller'' audit firms. The Proposed Roadmap stated that
the potential use of IFRS by U.S. issuers:
``[M]ay be particularly challenging for less globally-oriented audit
firms, which typically may have fewer resources available through
affiliated or network firms located in jurisdictions in which
issuers already report in accordance with IFRS. This could be a
further factor affecting concentration in the auditing profession.''
One commenter expressed concern that current IFRS expertise is
concentrated within the ``Big Four'' public accounting firms, which
could allow for opportunistic business behaviors when dealing with
other competitors and regulators.\211\ However, others commented
that an SEC mandate to move to IFRS would not affect the competitive
position of smaller firms.\212\
---------------------------------------------------------------------------
\211\ See ITAC.
\212\ See, e.g., ACCA, Deloitte, EY, ICAEW (indicated that a
move to IFRS did not have an identifiable impact on audit
concentration in Europe), and PwC.
---------------------------------------------------------------------------
In light of these differing views, the Staff will analyze for
the Commission's benefit potential auditor capacity constraints with
respect to IFRS and their consequences,
[[Page 9513]]
should the Commission determine in the future to incorporate IFRS
into the financial reporting system for U.S. issuers. Specifically,
the Staff will:
Analyze concerns regarding auditor capacity
constraints, including the effect on audit quality, cost, and audit
firm concentration and competitiveness.
Determine possible approaches to mitigate these
concerns and the extent of, logistics for, and estimated time
necessary to undertake these approaches.
[FR Doc. 2010-4171 Filed 3-1-10; 8:45 am]
BILLING CODE 8011-01-P