In a direct rebuke to the U.S. Securities and Exchange Commission (“SEC”), the U.S. Court of Appeals for the Fifth Circuit has vacated the new SEC rules for Private Funds adopted by the SEC in August 2023.
The vacated rules were consolidated into a single Private Funds rule upon the adoption of five new rules plus ancillary amendments to existing rules under the U.S. Investment Advisers Act of 1940 (the Advisers Act). The Private Funds rule represented the most significant regulatory development for Private Fund Advisers since the adoption of the Dodd-Frank Wall Street Reform and Consumer Protection Act of 2010.
Background
The SEC had attempted to accomplish several things with the new Private Fund rule: (i) introduce a harmonized standard for quarterly reporting; (ii) mandate an annual audit requirement for fund financial statements; (iii) require either valuation or fairness opinions for adviser-led secondaries; (iv) mitigate several “prohibited activities” through additional consent or disclosure requirements; and (v) address preferential treatment of certain investors within funds by either outright prohibition and/or disclosure requirements. The rule also included ancillary books and records requirements, as well as an amendment providing that the annual review required under Rule 206(4)-7 for all registered investment advisers (RIAs) be in writing.
The reforms described in (iv) and (v) above would have applied broadly to all Investment Advisers, including exempt advisers, not just RIAs.
Fifth Circuit Decision
In invalidating the rule, the Fifth Circuit ruled that the SEC had exceeded its authority under Section 211(h) of the Advisers Act, which gives the SEC authority to promulgate rules prohibiting or restricting sales practices, conflicts of interest and compensation schemes for broker-dealers and investment advisers that the SEC deems contrary to the public interest and the protection of investors. The Fifth Circuit held that Section 211, as a whole, applies only to “retail customers,” a term that specifically excludes private fund investors. Going back to the Goldstein case, and reinforced by the Dodd-Frank Act, courts have found that under the Advisers Act, Private Fund Advisers are generally deemed to provide investment advice only to the private fund itself, and not to the fund’s investors, who are not considered advisory clients.
The Fifth Circuit’s broad holding that Section 206(4) fails to authorize the SEC to require disclosure and reporting was perhaps more surprising than its holding limiting Section 211(h) to retail customers, and its reading of Section 206(4) may call into question the basis for existing rules. The SEC has enacted many of its key Advisers Act compliance requirements under its Section 206(4) authority, including requirements governing custody, political contributions, and compliance policies and procedures. Most recently, since November 2022, the marketing rule (Rule 206(4)-1) mandates a number of disclosure requirements as to RIA advertising, including through endorsements and testimonials.
Looking Ahead
While the ruling is a victory for Fund Sponsors, the SEC’s Department of Examinations included Private Fund Advisers as a continued focus of their examination program. Accordingly, many of the principles of Investor protection underlying the Private Funds rule may continue to be areas of focus of SEC review, including the pro rata sharing of fees and expenses, conflicts in Adviser-led secondaries, and presentation of performance information.