Industry

13-0058

February 20, 2013

Proposed Requirements for Debt Securities Transaction Reporting

Executive Summary

On January 30, 2013, the Board of Directors of IIROC approved the publication for comment of Proposed Rule 2800C -- Transaction Reporting for Debt Securities (the Proposed Rule).

The Proposed Rule will require each IIROC Dealer Member to report on a post-trade basis all debt market transactions executed by the Dealer Member, including those executed on an Alternative Trading System (ATS) or through an Inter-Dealer Bond Broker (IDBB). The Proposed Rule will facilitate the creation of a database of transaction information that will enable IIROC to carry out its responsibilities with respect to surveillance and oversight of over-the-counter (OTC) debt market trading.

This proposal does not contemplate making data regarding individual transactions available to the public at this time; however, IIROC would continue to publish aggregate debt trading statistics consistent with our current practice.

IIROC's proposed Debt Market Surveillance Project Plan (the Project Plan) details the proposed timing, format and content for all execution reports required under the Proposed Rule.

The key objectives of the Proposed Rule and Project Plan are to:

• ensure consistent and standardized reporting of OTC debt market transactions,

• create a database of transactions for all specified OTC Debt Securities,

• develop regular surveillance reports for IIROC to monitor trade activity,

• provide tools for IIROC to query and analyze the transaction data,

• ensure the Market Trade Reporting System (MTRS) reports compiled by IIROC based upon transaction data collected from market participants and filed with the Bank of Canada are complete, reliable and accurate, and

• enable analysis of trends and developments in the debt and money markets.

Comments are requested on the Proposed Rule and Project Plan by May 22, 2013.

1. Relevant History

IIROC's mandate is to "set and enforce high-quality regulatory and investment industry standards, protect investors and strengthen market integrity while maintaining efficient and competitive capital markets". This mandate applies to all trading activity on debt and equity markets in Canada.

Historically, the standards for regulatory reporting for debt instruments have been quite different from those for equities, in part because debt securities have been traded over the counter, with very little information available to the public. Equity markets, on the other hand, have traded on exchanges and Alternative Trading Systems (ATSs) with a high degree of transparency, including real-time order- and trade data as well as complete post-trade (historical) information.

Debt market activity represents a significant portion of the total value of securities market trading in Canada. In 2012, the value of secondary domestic bond market trading was approximately $10 trillion{1}; while money market trading represented an additional $6.7 trillion{2}. In comparison, equity markets represented about $1.9 trillion in value traded for 2012{3}.

Fixed income has become increasingly important to investors in recent years. Following the 2008 financial crisis, investors have turned to debt instruments as a perceived "safe haven" from the uncertainty and volatility of the equity markets. Debt securities form an integral part of balanced portfolio strategies for both institutional investors and retail investors. While retail investors represent a relatively small percentage of the value of debt instruments traded, they represent almost half the number of transactions executed annually.

As trading in all markets and instruments continues to evolve and the structure of many OTC-traded products becomes increasingly complex, it is important that regulators adapt their oversight activities to reflect these changes. In continuing to strengthen its oversight program for Debt Securities, IIROC has in recent years introduced the OTC Securities Fair Pricing Rule and enhanced its trade desk compliance examinations.

There has been significant debate in Canada regarding debt market trading and the lack of systematic regulatory reporting or transparency for investors. Many market participants have argued that the unique characteristics of debt market trading require that it be conducted in OTC markets with limited transparency. Others, including regulators, have expressed concerns related to market fairness, transparency and integrity.

The debate around debt market trading is not unique to Canada. IIROC has closely monitored developments in debt market reporting and transparency in other jurisdictions, through consultations with fellow regulators in the United States and United Kingdom, following public debate on the issues, and monitoring media articles and academic papers.

In April 2009, IIROC proposed enhancements to its existing principles-based fair pricing requirements, known as the "Fair Pricing Rule", that would require Dealer Members to provide or procure fair and reasonable prices for OTC securities (both debt and equity) transactions for both retail and institutional clients. In its proposal, IIROC expressed concerns that, due to the different structure and operation of over-the-counter markets, investors, particularly retail investors, have far less access to pricing information than they do for listed markets. Due to the lack of timely pricing information, we felt it important that ongoing regulatory oversight of retail debt trading is necessary to protect investors.

Following the comment period and subsequent changes to the draft rule, the Fair Pricing Rule (IIROC Dealer Member Rule 3300) was implemented in October 2011. In its Notice of Approval/Implementation{4} IIROC outlined the main objectives of the rule and its amendments, to:

1. ensure that clients, in particular retail clients, are being provided bid and offer prices for OTC securities that are fair and reasonable in relation to prevailing market conditions;

2. ensure that clients are provided sufficient disclosure regarding the security at issue that will enable them, as well as the clients' Registered Representative, to confirm through other market sources that the price being offered is a reasonable one in relation to prevailing market conditions;

3. underscore the principle that compliance activities are as important for OTC securities transactions as they are for listed securities transactions;

4. ensure that Dealer Members focus policies, procedures, supervisory and compliance efforts towards the OTC markets, in addition to the current focus on securities traded in organized markets, and provide Dealer Members' compliance departments with regulatory support for their compliance activities with respect to OTC business; and

5. acknowledge and highlight that the OTC markets differ in form and structure from the more formalized nature of the markets for listed securities, and to regulate the OTC markets taking these idiosyncrasies into account.

To ensure compliance with the Fair Pricing Rule, we also proposed that a system be developed which would enable IIROC staff to monitor Dealer Members' OTC debt market trading and provide the data that would allow IIROC to identify circumstances where trade prices do not align with the prevailing market. In consultation with industry and expert consultants, IIROC commenced work on the Debt Market Surveillance Project.

2. International Standards for Debt Market Regulatory Reporting

In many jurisdictions globally, regulators have historically had limited or no access to information for unlisted debt market trading. Information has typically been available only after the fact, usually through regulators' requests for information from participants.

Over the past decade, however, as market structure has continued to evolve, significant changes have increased the amount of information available in real time or post-trade for OTC Debt Securities. In many countries, trading of debt instruments now occurs on exchanges and ATSs. The rise of electronic trading has increased transparency in the secondary debt markets, just as it has in equity trading. Many regulators have also begun to implement more stringent requirements for trade reporting. Specifically, mandatory post-trade reporting has been established in a number of jurisdictions including the US, UK, Malaysia and Mexico{5}. Several countries have moved further toward more public transparency, and many academics{6} and industry bodies such as the CFA{7} have suggested that transparency in debt markets leads to more efficient markets and improved price discovery.

Regulatory reporting of OTC debt securities transactions can be expected to become even more common as securities regulators grapple with the globalization and growing interdependencies of financial markets.

In 2011, the CFA Institute published a paper entitled, "An Examination of Transparency in European Bond Markets", in which it suggested that investors would benefit from having access to more timely information about debt market trading. Recognizing that the issue of transparency is complex and that many participants have strong views against transparency, the CFA further stated that it believed that "the concerns of dealers in the market can be accommodated while still advancing transparency".

Italy, which has the largest European bond market, has extended pre-trade and post-trade transparency requirements beyond equities to include debt market trading.

The United States and the United Kingdom provide examples of debt securities markets that are subject to regulatory reporting similar to that being proposed by IIROC.

United States

In the US, Financial Industry Regulatory Authority (FINRA) rules require reporting of OTC debt transactions in nearly all non-governmental fixed-income securities{8} to FINRA. The Municipal Securities Rulemaking Board (MSRB), which has rulemaking jurisdiction in the U.S. municipal securities market, also operates a transaction reporting system. MSRB rules require dealers to report essentially all of their municipal securities transactions to that system.

FINRA and MSRB transaction reporting programs have been operational in one form or another since the mid-1990s. Both organizations moved to a 15-minute reporting deadline approximately 10 years later. FINRA monitors transaction reports using the Trade Reporting and Compliance Engine (TRACE) system and generates alerts and exception reports to be investigated by staff in conducting their market surveillance activities. In addition to providing post-trade data to regulators, most TRACE data is also publicly disseminated, providing post-trade transparency.

FINRA and MSRB each began with a relatively limited scope for their transaction reporting rules and, over time, expanded the scope. Today, US Treasury securities represent the only major category of debt securities in the United States not covered by a transaction reporting requirement.

MSRB shares its municipal securities transaction data with FINRA, which has inspection and enforcement responsibilities with respect to MSRB rules. FINRA's surveillance operations staff conduct regular and ad hoc surveillance queries against the transaction databases.

United Kingdom and MiFID I

The UK is another example of a developed country with sizable markets for both domestic and international debt instruments and a substantial amount of cross-border, non-exchange trading. The Financial Services Authority (FSA) is the single UK securities regulator.

Because the UK is a member of the European Economic Area (EEA), FSA regulations conform to directives of the European Union. With respect to transaction reporting, the relevant EU Directive is the Markets in Financial Instruments Directive (MiFID) which became effective in November 2007.

The FSA's transaction reporting requirements in Section 17 of its Handbook Supervision Manual (SUP 17) do not distinguish between debt securities and equities. They require all transactions, including OTC, in any financial instrument to be reported to the FSA by close of business on T+1 if the transaction involves a financial instrument "admitted to trading" on any "Regulated Market" in the EEA or on a "Prescribed Market" in the UK. (The term "Regulated Market" essentially means a securities exchange, while the AIM and PLUS markets (both affiliated with the LSE) are the only two Prescribed Markets relevant to FSA rules.)

FSA rules also require the reporting of any transaction in an OTC derivative if the value of the instrument is derived from, or is otherwise dependent on, "an equity or debt-related financial instrument that is admitted to trading on a Regulated or Prescribed Market".

The FSA maintains a system, known as Zen, that accepts the transaction reports and provides FSA staff with a platform to perform market surveillance. While this information is not publicly available, there is some post-trade transparency offered for debt instruments via industry-led initiatives.

MiFID II

Most debt securities traded in the UK are not listed on a Regulated or Prescribed Market. Consequently, the current FSA rules have a somewhat limited reach in the UK OTC bond markets. MiFID II{9}, the proposed successor to MiFID I, would add the requirement to report transactions, including OTC transactions, if the financial instrument is "admitted to trading on" or "trading on" a "Multilateral Trading Facility" or an "Organized Trading Facility". The definition of "Organized Trading Facility" is sufficiently broad to include broker crossing networks and inter-dealer broker systems. The future implementation of MiFID II would likely, therefore, extend coverage of the reporting requirement to a much larger percentage of the UK bond market.

The table below compares existing and Proposed Rules for regulatory reporting in the US, UK and Canada.

 

Current Rules in Other Selected Jurisdictions

Proposed Rules

 

 

US

US

EEA Countries (UK)

EEA Countries (UK)

Canada{10}

 

Non-Municipal Securities

Municipal Securities

UK Rules conform with EEA Policy Stated in MiFID I

MiFID II -- proposed for EEA (including UK) for 2015

Full implementation targeted for 2015

 

Regulator

FINRA

MSRB

FSA

FSA/ESMA

IIROC

 

Rule

Rules 6700-6770

Rule G-14

Section 17 of FSA Supervisor Handbook

Section 17 of FSA Supervisory Handbook

Dealer Member Rules Part 2800C

 

Coverage

Corporate, Government Agency, Mortgage-Backed and Other Asset-Backed Debt Securities; Structured Products

Municipal Securities, including College Saving Plans ("529" accounts)

Any Instrument listed on EEA "Regulated Market" (exchange) or a "Prescribed Market" (PLUS-quoted and AIM markets in UK) even if traded OTC; OTC derivatives if value is based on covered instrument

Add: Any Instrument (even if traded OTC) if it is "admitted to trading or trading on a Multilateral Trading Facility" or an "Organized Trading Facility" AND instruments (e.g., derivative) that are correlated to and influence the price of instruments admitted to trading on an MTF or OTF

All Debt Securities; Repo/Reverse Repo Transactions; Internal Transfers between Business Units

 

Reporting Deadline

15 min. after trade

15 min. after trade

Close of Business on T+1

Close of Business on T+1

Start of Business on T+1

 

Significant Exemptions

US Treasuries; Repos; Exchange Trades

General Collateral Repos

"Financing Transactions" (Repos); Primary Market Transactions

"Financing Transactions" (Repos); Primary Market Transactions

No CUSIP or ISIN; Exchange Trades

Current Rules in Canada

National Instrument 21-101 specifies the Pre-Trade and Post-Trade Information Transparency Requirements for Government and Corporate Debt Securities. The National Instrument requires that a marketplace, an inter-dealer bond broker and a dealer provide accurate and timely information regarding the details of trades in designated corporate debt securities to an information processor (currently CanPX). There is an exemption in place until January 1, 2015 for Government Debt Securities.

3. Bank of Canada and MTRS Reporting

At the present time, the most comprehensive standardized reporting of debt market transactions in Canada is the weekly statistical reports provided by Government Securities Distributors ("GSDs") to the Bank of Canada. This is a requirement for participation in Government of Canada securities auctions. The weekly statistics are submitted through the Market Trade Reporting System (MTRS) from which quarterly reports are produced. The Bank of Canada uses this data for various purposes related to its management of government securities auctions, including the calculation of bidding limits for GSDs and for analysis of trends and developments in the debt and money markets.

Over the years IIROC has had ongoing discussions with the Bank of Canada regarding the efficient functioning of the Canadian debt markets and the importance of the MTRS reporting. The Bank of Canada, IIROC and the dealer community have held discussions on ways to improve the efficiency of MTRS data collection, and the quality, comparability and reliability of the data collected. There have been some concerns regarding potential inconsistencies in the MTRS reporting methodologies among dealers.

It is currently contemplated that IIROC will produce the MTRS reports from the transaction data collected and that the reporting of transaction data will continue to be a condition of participation in Government of Canada securities auctions for GSDs. IIROC's electronic system for reporting debt securities transactions will serve as the successor to MTRS. The Proposed Rule will require that all GSDs begin reporting debt securities transactions to IIROC's transaction reporting system and IIROC will share this data with the Bank of Canada, obviating the need for dealers to submit weekly aggregate reports covering the same transactions. Reflecting this role as the successor system to MTRS, IIROC proposes to name its system the MTRS 2.0.

4. Proposed IIROC Debt Market Reporting Requirements

4.1 The Debt Market Surveillance Project

In establishing the Debt Market Surveillance Project (the Project), the primary goal was to examine various options for the creation of a transaction database, and reporting and analytical tools, to enable IIROC to cost-effectively carry out its responsibilities regarding surveillance and oversight of OTC debt market trading, and to replace the existing MTRS framework.

The Project was initiated in October 2011 following implementation of IIROC Dealer Member Rule 3300 -- Fair Pricing of Over-The-Counter Securities. The Project team met with a variety of dealers and industry stakeholders to consider all views, analyze alternatives, and develop the Project Plan.

The feedback received from industry participants, the Bank of Canada and other interested parties has demonstrated general support for the objectives of the Project and the potential benefits to the industry of improved data quality and integrity. The following guidelines, representing the common views of most stakeholders, were applied in developing the detailed Project Plan:

• More detailed reporting requirements are critical to effective IIROC oversight of OTC debt market trading;

• IIROC should specify the content and format of data to be provided and allow for different data delivery options;

• Reporting should be required on a post-trade basis only (T+1);

• New requirements should be implemented in phases where appropriate;

• Dealer Members should provide standard reports, which could be supplemented by ad hoc information where requested;

• IIROC staff could refine the requirements for reports after implementation of the Proposed Rule, based on its analysis of the data received during the initial phase of reporting; and

• Dealer Members should be given a reasonable implementation period following final approval of the Proposed Rule.

4.2 Regulatory Objectives

IIROC's priorities in conducting oversight of debt market trading are to strengthen the fairness and integrity of the debt markets, and to ensure compliance and prevent and/or address identified abuses in areas such as:

• best execution and fair pricing;

• front running (use of material non-public information to trade ahead of client bond trades or issuances);

• manipulation of the price of a debt market instrument or class of instruments; and

• suitability (particularly with respect to certain specific instrument types).

These priorities were the primary considerations in determining the data elements that IIROC expects to be reported under the Proposed Rule.

4.3 Proposed Reporting Requirements

Dealer Members will be required to report transactions to IIROC on T+1 for all transactions in debt securities (as defined in section 1.1 of the Proposed Rule, attached in Appendix A) including those executed on an ATS or through an Inter-Dealer Bond Broker (IDBB).

Dealer Members will be required to report transaction information promptly, accurately and completely. For transactions that involve a Dealer Member and a non-Dealer Member (including a customer), the Dealer Member will be required to submit a trade report to IIROC. For transactions between two Dealer Members, both Dealer Members will be required to submit a trade report.

It is anticipated that Members will have several options on how to deliver trade reports to IIROC, based on the volume of their activity. Transaction reports will be required to include specific data elements, as described in the Project Plan and updated from time to time.

Dealer Members will be permitted to use third-party agents for the purpose of submitting transaction information; however, the primary responsibility for timely, accurate and complete reporting will remain the duty of the Dealer Member.

Complete details regarding data elements, system specifications, delivery times, exception reporting (on non-business days or outside normal business hours), etc. will be covered in the MTRS 2.0 User Guide, to be published at a later date.

4.4 Implementation of Reporting Requirements

It is expected that the reporting requirements will be implemented in phases, which will depend on the type of instrument traded and whether the Dealer Member is a participant in the Bank of Canada MTRS. Details of the proposed implementation timeframes are set out in Section 4 of the Project Plan, attached as Appendix B.

The Proposed Rule provides IIROC with the specific power to change the reporting requirements. In the event that IIROC proposes at some future time to make a material change, IIROC will issue a notice requesting public comment during a comment period of at least 30 days. Following the comment period and upon the approval of the change by the applicable securities regulatory authorities, IIROC will issue an updated MTRS 2.0 User Guide and confirm the effective date of the change. Regardless of materiality, Dealer Members will be provided with an appropriate notice period to permit development and implementation of a change to the reporting requirements.

5. Rule-making Process

As part of the rule development process, IIROC Staff consulted with several Dealer Members' representatives, both individually and collectively, that represent the majority of debt market trading activity in Canada. IIROC's Fixed Income Committee also reviewed and commented on the Proposed Rule and Project Plan. The goal of these consultations was to ensure that the Proposed Rule and Project Plan are reasonable in scope and operationally achievable.

In general, most firms were supportive of the objectives of the project and also saw benefits to be derived for the industry. All of the major dealers indicated that they did not anticipate major issues with collecting and reporting the trade data required.

The Proposed Rule and Project Plan were approved for publication by the IIROC Board of Directors on January 30, 2013.

The text of Proposed Rule is set out in Appendix A. The Project Plan is set out in Appendix B.

5.1 Issues and Alternatives Considered

IIROC believes that the policy rationale for the introduction of transaction reporting requirements in other jurisdictions applies equally in the Canadian context, and that the Proposed Rule is necessary to ensure that IIROC is able to provide effective oversight of trading in the debt markets in Canada.

Discussions (spanning a number of years) have been held with the Canadian Depository for Securities (CDS) to determine if the required data could be collected from a single source, eliminating the need for each dealer to report to IIROC. It was determined, however, that CDS is not a viable, comprehensive and exclusive source of the required data as it does not collect or receive any information regarding retail transactions, and existing CDS records are missing a number of the data elements that are critical to our overall objectives. One such element is the time at which each transaction occurred. We were unable to identify any other existing sources for the required transaction data.

5.2 Proposed Rule Classification

Statements have been made elsewhere as to the nature and effects of the Proposed Rule. The purposes of the Proposed Rule are to:

• promote just and equitable principles of trade and the duty to act fairly, honestly and in good faith, and

• foster cooperation and coordination with entities engaged in regulating, clearing, settling, processing information with respect to, and facilitating transactions in, securities.

The Board has determined that the Proposed Rule is not contrary to the public interest.

Due to the substantive nature of the Proposed Rule, it has been classified as a Public Comment Rule proposal.

6. Effects of Proposed Rule on Market Structure, Dealer Members, Non-Members, Competition and Costs of Compliance

The Proposed Rule does not impose any burden or constraint on competition or innovation that is not necessary or appropriate in furtherance of IIROC's regulatory objectives. IIROC has consulted with Dealer Members who have confirmed that existing trade capture systems can be leveraged to create transaction files suitable for transmission to IIROC. Therefore, the Proposed Rule does not impose costs or restrictions on the activities of market participants (including Dealer Members and non-Dealer Members) that are disproportionate to the goals of the regulatory objectives sought to be realized.

The costs associated with the ongoing operation and maintenance of MTRS 2.0, including technology, staff and other direct costs, will be allocated to IIROC Dealer Members on a cost-recovery basis. A cost-recovery model, which may be based on transactions, will be developed separately and published for comment prior to implementation.

Dealer Members will incur their own technology start-up costs as well. We have not been provided with any estimates of these costs but we do not anticipate that they will be disproportionate to the benefit associated with the elimination of MTRS reporting that is currently done.

7. Technological Implications and Implementation Plan

Dealer Members that participated in industry consultations under the Debt Market Surveillance Project indicated that the data elements to be reported under the Proposed Rule could be collected from existing data sources using client order management systems or the Dealer Members' mid-office systems, where client information is held along with trade execution information. All of the Dealer Members consulted indicated that they did not anticipate significant issues with collecting and reporting the required trade data.

The Proposed Rule will be implemented following approval by the recognizing regulators and in accordance with the Project Plan and MTRS 2.0 User Guide, which is to be developed and finalized in consultation with Dealer Members.

8. Request for Public Comment

Comments are sought on the Proposed Rule and Project Plan. Comments should be made in writing. Two copies of each comment letter should be delivered within 90 days of the publication of this notice.

One copy should be addressed to the attention of:

Richard Corner
Vice-President, Member Regulation Policy
Investment Industry Regulatory Organization of Canada
Suite 2000, 121 King Street West
Toronto, Ontario M5H 3T9
rcorner@iiroc.ca

A second copy should be addressed to the attention of:

Manager of Market Regulation
Ontario Securities Commission
20 Queen Street West
19th Floor, Box 55
Toronto, Ontario M5H 3S8
marketregulation@osc.gov.on.ca

Those submitting comment letters should be aware that a copy of their comment letter will be made publicly available on the IIROC website (www.iiroc.ca under the heading "IIROC Rulebook -- Dealer Member Rules -- Policy Proposals and Comment Letters Received").

Questions may be referred to:

Mike Prior
Vice President, Market Surveillance
Investment Industry Regulatory Organization of Canada
416-646-7217
mprior@iiroc.ca

9. Attachments

Appendix A -- Proposed Rule 2800C -- Transaction Reporting for Debt Securities

Appendix B -- Debt Market Surveillance Project Plan

{1} Source IIROC website: http://www.iiroc.ca/industry/marketmonitoringanalysis/Documents/BondMarketSecondaryTrading_en.pdf

{2} Source IIROC website: http://www.iiroc.ca/industry/marketmonitoringanalysis/Documents/MoneyMarketSecondaryTrading_en.pdf

{3} Source IIROC website: http://www.iiroc.ca/news/Documents/MarketplaceStatisticsReportCurrent_en.pdf

{4} IIROC Notice of Approval/Implementation, Sept. 1, 2011

{5} Transparency of Corporate Bond Markets, Report of the Technical Committee of the International Organization of Securities Commissions (IOSCO), May 2004

{6} Corporate Bond Market Transparency and Transaction Costs by Edwards, Amy K., Harris, Lawrence and Piwowar, Michael S; September 21, 2004

{7} An Examination of Transparency in European Bond Markets, CFA Institute, October 2011, Volume 2011, No. 5

{8} FINRA requires all trades in eligible Corporate, Equity Linked Notes and Convertible Debt and MSRB requires all trades in Municipal Debt

{9} MiFID II has not yet been approved and may be subject to further amendments. Final approval is expected sometime in 2015

{10} See Appendix B, Section 4.1

 

Appendix A -- Proposed Rule 2800C -- Transaction Reporting for Debt Securities

Introduction

This Rule 2800C requires Dealer Members to report information about each of their transactions (and their related affiliates' transactions) in Debt Securities to the Corporation through an electronic system maintained by the Corporation.

Purpose

Rule 2800C requires Dealer Members to report information about each of their transactions (and their affiliates' transactions) in Debt Securities to the Corporation through the electronic system operated by the Corporation for this purpose. The reported transaction data is used in the Corporation's surveillance of the debt market to identify potential market abuses such as violations of the fair pricing requirements of Dealer Member Rule 3300, insider trading and market manipulation. It also supports the Corporation's general inspection and enforcement activities, rulemaking, and other regulatory functions. The trade data received pursuant to this rule enables appropriate oversight to ensure the integrity of OTC debt market trading and strengthen standards of investor protection. Reported transaction data may be shared on a confidential basis with other securities market regulators as well as the Bank of Canada and may be aggregated for statistical reports and other market research that is made public.

1. Definitions

For purposes of Rule 2800C, the terms below have the meanings noted.

1.1 "Debt Securities" means any securities that provide the holder with a legal right, in specified circumstances, to demand payment of the amount owing and includes a debtor-creditor relationship. The fact that a security was issued in another country or denominated in a foreign currency does not disqualify it from being a Debt Security. The term includes securities with short-term maturities or mandatory tender periods such as commercial paper and floating rate notes as well as traditional notes and bonds. Derivative products that are not securities (e.g., futures contracts, interest-rate swaps) are not Debt Securities.

1.2 "MTRS 2.0" means the Debt Securities transaction reporting system operated by the Corporation. As used in this term, "MTRS" is an abbreviation of "Market Trade Reporting System". MTRS 2.0 replaces the Bank of Canada's MTRS.

1.3 "Bank of Canada's MTRS" means the transaction reporting system for Debt Securities currently operated by the Bank of Canada. As used in this term, "MTRS" is an abbreviation of "Market Trade Reporting System".

1.4 "MTRS 2.0 User Manual" means the electronic document containing technical specifications, business rules, reporting procedures and other official instructions on transaction reporting under Rule 2800C. The MTRS 2.0 User Manual is available on the Corporation's web site and is updated as necessary.

1.5 "MTRS 2.0 Enrollment Form" means the electronic form filed by a Dealer Member with the Corporation to supply contact and other information that may be needed by the Corporation in connection with the Dealer Member's reporting of Debt Securities transactions. An MTRS 2.0 Enrollment Form must also be filed by any party seeking to act as an agent for a Dealer Member in reporting transaction data to MTRS 2.0.

1.6 "MTRS 2.0 Submitter Identifier" means a code assigned by the Corporation to a Dealer Member or an agent of a Dealer Member that has successfully enrolled in MTRS 2.0 for transaction reporting.

1.7 "Special Condition Indicator" means a code used on a transaction report to indicate that the transaction has certain attributes described as Special Conditions in the MTRS 2.0 User Manual. Among other uses, the Special Condition Indicator helps to identify transactions that may be priced differently than other transactions in the same issue (e.g., a primary market transaction subject to a fixed price offering agreement). Special Condition Indicators are also used to identify sale and repurchase and reverse sale and repurchase transactions, transactions that involve parties related to the Dealer Member executing the transaction, and certain other conditions that may apply to a transaction and that are relevant to the regulatory and market surveillance purposes of Rule 2800C.

1.8 "Riskless Principal Trade" means a trade in a Debt Security that involves two offsetting orders (buy and sell) that are filled through transactions executed against a Dealer Member's trading or other proprietary account, with the execution of one of the orders dependent upon the receipt or execution of the other. A riskless principal trade results in two offsetting principal transactions on the Dealer Member's books, rather than one agency transaction. A Dealer Member typically performs a riskless principal trade to fill a client order with an offsetting transaction in the market or with another client.

2. Reporting Requirements

2.1 (a) General Transaction Reporting Requirement

Every Dealer Member must report each of its transactions in Debt Securities to the Corporation within the timeframes and in the manner specified in this Rule 2800C, as supplemented and explained in the MTRS 2.0 User Manual as may change from time to time, subject to the exceptions stated below:

(b) Exceptions

(i) Debt Securities Without Assigned ISIN or CUSIP Numbers

A transaction in a Debt Security that has no ISIN or CUSIP number assigned on the Date of Trade Execution is exempt from the transaction reporting requirement in this Section 2.1 of Rule 2800C; provided, however, that a transaction in a new issue of a Debt Security shall be reported within the timeframe stated in Section 2.5 of this Rule 2800C if an ISIN or CUSIP number is assigned to the Debt Security by 6:00 p.m. Eastern Time on the Business Day following the date of sale of the new issue.

(ii) Transactions Executed on an Exchange

A transaction in a Debt Security executed on a domestic securities exchange is exempt from the transaction reporting requirement in this Section 2.1 of Rule 2800C.

2.2 Reporting Responsibilities of Dealer Members in Specific Situations

The responsibilities of Dealer Members for transaction reporting in specific trading situations are described in detail in the MTRS 2.0 User Manual. Reporting responsibilities in the most common situations are as follows:

(a) In a transaction between a Dealer Member and a client (or another dealer that is not a Dealer Member), the Dealer Member reports.

(b) In a transaction between two Dealer Members, each Dealer Member is responsible to report the transaction from its perspective (buy-side or sell-side). This responsibility includes the requirement for a Dealer Member to make a buy-side or sell-side transaction report, as appropriate, when it is a party to a transaction that results in the movement of securities between the accounts of an introducing broker and its clearing broker. Similarly, a report is required when a Dealer Member is one of the parties in a transaction between two dealer clients of the same clearing broker.

(c) A Dealer Member that executes a transaction in the market to fill an order it has received from a source external to the trading desk executing the order must report both a market-side transaction and a client-side transaction, regardless of whether the trade is effected as a Riskless Principal Trade or is executed in an agency capacity.

2.3 A Dealer Member may use an agent to submit transactions to MTRS 2.0 by ensuring that the conditions stated in the MTRS 2.0 User Manual for use of an agent are met. These conditions include enrollment in MTRS 2.0 by both the Dealer Member and the agent. A Dealer Member utilizing an agent for transaction reporting remains responsible for compliance with Rule 2800C and is responsible for the agent's actions on its behalf as well as any failure by the agent to act as required under the Rule.

2.4 Information Required on Transaction Reports

Each transaction report must contain accurate and complete information about the reported transaction as specified in the Transaction Record Specifications and other instructions contained in the MTRS 2.0 User Manual. Required information includes, but is not limited to, price and quantity information, identifiers for the securities and parties involved in the transaction, the time and date that the transaction was executed, and any Special Condition Indicators applicable to the transaction.

2.5 Reporting Timeframes

(a) File Receipts

The MTRS 2.0 User Manual provides detailed specifications on how to transmit electronic files containing transaction records to the Corporation. Upon a successful submission and receipt by the Corporation, MTRS 2.0 provides the submitter with an electronic receipt including a control number, the time and date that the transmission was received, and certain other information for each successful file transmission. A Dealer Member should not consider a file containing transaction records to have been received unless the Corporation generates such a file receipt.

File receipts must be retained by the Dealer Member for seven years and be retrievable within a reasonable period of time. File receipts must be retained in a central, readily accessible place for a period of two years from the date of each file receipt.

(b) Reporting Deadlines

A Dealer Member must ensure that a transaction report for which the Dealer Member is responsible is received by the Corporation in proper form and with complete and accurate information within the following timeframes:

(i) For transactions in Debt Securities with ISIN or CUSIP Numbers assigned on the Date of Transaction Execution:

(A) if the date of transaction execution is a Business Day and the time of transaction execution is no later than 6:00 p.m. Eastern Time, the report must be made no later than 2:00 a.m. Eastern Time on the Business Day following the date of transaction execution;

(B) if the date of transaction execution is a Business Day and the time of transaction execution is after 6:00 p.m. Eastern Time, the report must be made no later than 2:00 a.m. Eastern Time on the second Business Day following the date of transaction execution; and

(C) for all other transactions, including those executed on a Saturday, Sunday, or any officially recognized Federal or Provincial statutory holiday on which the system is closed, the report must be made no later than 2:00 a.m. Eastern Time on the second Business Day following the Date of Transaction Execution;

provided, however, that:

(ii) for transactions in new issue debt securities with no ISIN or CUSIP number assigned a transaction report required under Paragraph 2.1(b) of this Rule must be made no later than 6:00 p.m. Eastern Time on the Business Day following the day that the ISIN or CUSIP number is assigned.

3. Enrollment Requirements

(a) Initial Enrollment

Prior to submitting Debt Securities transaction reports to MTRS 2.0, a Dealer Member (and its agent if an agent is used for submitting transaction reports) must enroll in MTRS 2.0 and receive an MTRS 2.0 Submitter Identifier from the Corporation. The Corporation will accept transaction reports only from Dealer Members and agents of Dealer Members that are enrolled in MTRS 2.0 and that have an assigned Submitter Identifier. Enrollment is accomplished by completing the MTRS 2.0 Enrollment Form with all required information, including technical and business contact points.

(b) Requirements for Continued Enrollment

Once enrolled, Dealer Members remain responsible to keep all information on the MTRS 2.0 Enrollment Form up-to-date and to follow procedures stated in Rule 2800C and the MTRS 2.0 User Manual. The Corporation may revoke a Dealer Member's enrollment and/or the enrollment of a Dealer Member's agent, thereby removing access to MTRS 2.0, in the case of continued behavior that threatens the accuracy of transaction data collected by the Corporation or the reliable operation of any of the Corporation's electronic systems including MTRS 2.0 (e.g., continued submission of files with erroneous data; incorrectly formatted files or records; or files containing computer viruses).

4. Testing Requirements

Prior to submitting Debt Securities transaction reports to MTRS 2.0, a Dealer Member or prospective agent for a Dealer Member must successfully test its capability to submit transaction files and records. Procedures for testing are included in the MTRS 2.0 User Manual as may change from time to time.

 

Appendix B -- Debt Market Surveillance Project Plan

1. Introduction

At this time, IIROC is addressing the issue of improved regulatory reporting only for debt market transactions in Canada with the Debt Market Surveillance Project to establish and maintain MTRS 2.0. This Project Plan outlines the scope and objectives of the Project and the steps that will be taken toward its implementation. The Project Plan includes a high-level summary of dealer reporting requirements, the instruments to be covered and the data elements for each transaction to be reported. Unless otherwise defined, capitalized terms are as defined in the Proposed Rule 2800C -- Transaction Reporting for Debt Securities or in existing Dealer Member Rules.

2. Project Overview

2.1 Objectives

The Debt Market Surveillance Project was initiated by IIROC in October 2011 following approval of Rule 3300, the Fair Pricing Rule, to implement a debt market regulatory reporting and compliance program. This Project will enable IIROC to address regulatory issues and to conduct appropriate oversight in order to ensure the integrity of OTC debt market trading and thus strengthen standards of investor protection and promote investor confidence. In addition, this Project will result in the development of IIROC's trade repository for debt security transactions and is likely to serve as the successor to MTRS. The key stakeholders for this project are:

• IIROC, who will use the information to monitor trading in various Debt Securities in fulfilling its oversight mandate;

• Dealer Members (and their related affiliates) who execute transactions in Debt Securities and will be required to report on activities carried out by their organizations as well as their affiliated entities; and

• Bank of Canada, who will use this data to assess trends in debt market activities and as part of their requirements for participation in primary distributions.

Specifically, the Project aims to:

• ensure consistent and standardized reporting of all OTC debt market transactions on a post-trade basis;

• create a complete transaction database;

• develop regular surveillance reports and query tools for IIROC staff to monitor and analyze trade activity; and

• ensure reliable and accurate MTRS reports are produced.

2.2 Project Approach

With the initiation of the Project in October 2011, a Project team was formed and an outside consultant hired to develop the detailed Project Plan.

An introductory meeting was held with representatives of all key dealer participants in November 2011 to provide information regarding the objectives of the project, outline the intended scope and timeline for the project, and answer preliminary questions. Subsequent, individual meetings were held with a number of firms{11} from November 2011 to February 2012, to solicit dealers' comments and feedback on the project. Each dealer was asked to outline their organizational structure for debt market trading, their trade process and what systems were used to capture and store data throughout the process. Meetings were also held with key industry participants including CanDeal, CBID, CDS and two data vendors.

In general, most firms were supportive of the objectives of the Project and also saw benefits to be derived for the industry in relation to improving the quality and integrity of MTRS data. Dealers suggested that the best source of the data for regulatory reporting would be either the client order management systems or the mid-office system where client information is held along with trade execution information, including details such as client ID and time of the trade. All of the major dealers indicated that they did not anticipate major issues with collecting and reporting the trade data required.

Discussions were held with CDS to determine if the required data could be collected from a single source and thus alleviate the need for each dealer to report to IIROC. However, it was determined that the current absence of retail trade information and transaction time stamps precludes this approach through CDS. IIROC and the Bank of Canada have been collaborating on improvements to the MTRS reporting framework.

During July and August 2012, the project team began development of the Project Plan and draft rule. In September 2012, a follow-up meeting was held with the Dealer representatives to provide an update on the project and to discuss the key elements of the proposed regulatory reporting requirements.

2.3 Scope

Dealer Members will be required to report transactions to IIROC, on T+1, for all transactions in Debt Securities (as defined in section 1.1 of the Proposed Rule) including those executed on an ATS or through an Inter-Dealer Bond Broker (IDBB).

2.4 Risks

The following risks to successful implementation of the project have been identified:

• delays in approval of the Proposed Rule; and

• reduced availability of internal resources committed to the Project due to unforeseen shifts in business priorities (e.g., industry-driven issues that necessitate near-term regulatory changes).

3. IIROC Surveillance Requirements

3.1 Surveillance Oversight

Transaction data from IIROC Dealer Members will be collected and the Surveillance team will be provided with a set of alerts and reports for their review and investigation.

In the initial phases of the project, basic reports and queries will be developed. It is expected that, over time, as IIROC Surveillance staff become familiar with the trading patterns and trends in debt market trading, additional reports and more sophisticated query tools will be developed.

Basic reports will include information regarding:

• transactions identified with trade prices outside an acceptable range from the average trade price for that instrument on the trade date;

• instruments which have traded outside of their normal trade price or volume ranges;

• insider trading that has occurred in equities for examination of related debt instruments;

• distribution of primary debt issuances, including on the date of the distribution as well as trading prior to and after the distribution; and

• distribution of primary BA issuances in relation to the corresponding CDOR rate.

Basic queries will include the ability to select and analyze:

• all transactions by date for a specific instrument by ISIN/CUSIP;

• all transactions for an instrument over a specified period of time; and

• all transactions for an instrument in relation to the associated benchmark bond.

3.2 Use of Data

Reporting of data by Dealer Members to IIROC is a regulatory obligation as defined in Proposed Rule 2800C -- Transaction Reporting for Debt Securities. All data collected by IIROC will be received for regulatory purposes in order to conduct appropriate surveillance and oversight of debt market trading.

This proposal does not contemplate making data regarding individual transactions available to the public at this time; however, IIROC would continue to publish aggregate debt trading statistics consistent with current reporting{12}. Changes to this position, if any, would be subject to comprehensive industry consultation and public comment.

4. Reporting Requirements for Dealers

Proposed Rule 2800C establishes the requirements for reporting of OTC Debt Securities.

4.1 Phasing In of Reporting

To facilitate the initial implementation of transaction reporting for Debt Securities, Dealer Member responsibilities under Proposed Rule 2800C are to be phased in based on: (i) the Dealer Member's participation in Bank of Canada's MTRS system, (ii) the types of Debt Securities traded, and (iii) the type of transaction, as follows:

Phase 1

All Dealer Members that, as of September 1, 2013, were GSDs and participants in Bank of Canada's MTRS must comply with the full Rule. For those Dealer Members, the Rule is effective with respect to all of their transactions in Debt Securities issued in Canada and denominated in Canadian dollars, including all sale and repurchase and reverse sale and repurchase transactions in Canadian dollars involving Debt Securities issued in Canada.

Phase 2

(a) Dealer Members that, as of September 1, 2013, were GSDs and participants in the Bank of Canada's MTRS must comply with the full Rule with respect to all transactions in Debt Securities, including transactions that involve foreign currency or Debt Securities not denominated in Canadian dollars.

(b) Dealer Members that, as of September 1, 2013, were not GSDs and participants in the Bank of Canada's MTRS must comply with the full Rule for all transactions, including transactions that involve foreign currency or Debt Securities not denominated in Canadian dollars.

The following table summarizes the proposed phases and projected timeline:

Action Item

Timeline

 

Proposed Rule Comment Period

Q1/Q2 2013 (90 days)

 

System Requirements to be finalized and published

Q1 2013 -- Q3 2013

 

Publish Final Rule

Q4 2013

 

Phase 1 Implementation

6-12 months after final rule published

 

Phase 2

12-24 months after final rule published

4.2 Reporting Obligation

Trade data input obligations will be as follows:

• In transactions between two Dealer Members, both Dealer Members shall submit a trade report to IIROC; and

• In transactions involving a Dealer Member and a non-Dealer Member (including a customer) the Dealer Member shall be required to submit a trade report to IIROC.

Dealer Members have an ongoing obligation to report transaction information promptly, accurately, and completely. The Dealer Member may employ an agent for the purpose of submitting transaction information; however, the primary responsibility for the timely, accurate and complete reporting of transaction information remains the duty of the Dealer Member.

4.3 Timing of Transaction Reporting

Dealer Members will be required to submit transaction information to IIROC on the day following the trade (i.e. T+1). Complete details regarding timing of transaction reporting will be covered in the MTRS 2.0 User Guide. This specification will cover delivery times for reports to be delivered to IIROC and reporting of trade exceptions such as trades executed on non-business days or outside normal business hours.

4.4 Data Elements

Each transaction report must contain the following information about the transaction:

• Submitter Identifier

• Securities Identifier

• Coupon of Securities (using "variable" designation stated in User Manual if the coupon is variable)

• Quantity of Securities

• Price of Transaction

• Commission or Mark-Up Stated on Confirmation (if any)

• Yield Stated on Confirmation (if any)

• Date of Transaction Execution

• Time of Transaction Execution

• Settlement Date

• Reporting Dealer MTRS Identifier -- Primary (the dealer that executed the transaction)

• Reporting Dealer MTRS Identifier -- Secondary (populated for example if a second Dealer Member, acting as a fully disclosed introducing broker, is the source of the order executed on the reporting side of a trade and no movement of securities occurs between an account of the Dealer Member acting introducing broker and an account of the executing dealer).

• Buy/Sell Indicator

• Capacity -- Principal or Agent ("Riskless Principal Trades" reported as Principal Capacity)

• Counterparty Indicator

• Counterparty Identifier

• Trader Identifier

• Customer Account Identifier

• Benchmark Security Identifier (ISIN or CUSIP of any Canada Bond used as pricing benchmark)

• Trading Venue Code

• Any Applicable Special Condition Indicators, including:

• Repo Indicator

• Fee-Based Account Indicator

• Primary Market Indicator

• Internal Transaction Indicator

• Related Party Indicator

• Non-Resident Indicator

• For trades where the Repo Indicator is reported:

• Repo Rate

• Repo Maturity Date (if fixed)

• Open Repo Indictor (opening or closing)

• Repo Haircut

• Repo Collateral Security Identifier

5. Technology Infrastructure

Currently, there is no database of debt market transactions and there are no fixed-income alerts or reports available. IIROC will build a database for debt market transactions and implement a debt surveillance module which will produce a suite of alerts and reports. Staff will also obtain, from external sources, certain reference data to create a security master file, which will include details of each debt instrument.

It is anticipated that Dealer Members will have several options for delivery of trade reports to IIROC, based on the volume of their activity. These options will include:

• File transfer (CSV file) via a direct dedicated line between the Dealer and IIROC;

• File transfer (CSV file) over secure internet connection from Dealer to IIROC; and

• Web Interface for Dealers with small transaction volumes -- screen entry of all trades.

Note that some Dealer Members may choose to have a third party provide their transaction data to IIROC. This is acceptable to IIROC but the Dealer must ensure that their provider meets all IIROC specifications and requirements.

Detailed system specifications will be prepared by IIROC staff and published as part of the MTRS 2.0 User Guide prior to the final Rule being published.

{11} All dealers were offered the opportunity to meet with the project team representatives. Meetings were held with appropriate representatives from Bank of America/Merrill, BMO, Canaccord, Casgrain, CIBC, Deutsche Bank, GMP, HSBC, NBF, RBC, Scotia, TD Securities as well as CanDeal, CBID, CDS, Bloomberg and GMarkets.

{12} See http://www.iiroc.ca/industry/marketmonitoringanalysis/Documents/BondMarketSecondaryTrading_en.pdf