A recent public
statement by Timothy Massad, the Chairman of the Commodity Futures Trading
Commission (“CFTC” or “Commission”) indicates that the CFTC still plans to
finalize its position limits rule before the end of the year. The rule, which
is many years in the making, has taken multiple forms since first being
proposed in response to the enactment of the Dodd-Frank Act and struck down by
a court. It is intended to limit
speculative trading, thereby mitigating risks of market disruptions or
manipulation. Most recently, the CFTC
issued a Supplemental Proposal that would delegate to the exchanges (or, in
CFTC parlance, “Designated Contract Markets”) the ability to grant bona fide
hedge exemptions from not only the exchanges’ own position limits but also
federal position limits set by the CFTC.
Many
comments filed on the Supplemental Proposal praised the concept of delegating
this function to the exchanges, which have experience implementing limits and
understand the markets in which contracts are traded on their platforms. This
concept initially was seen as welcome relief from a relatively narrow list of
enumerated bona fide hedge exemptions proposed previously by the CFTC. But, concerns remain about details of the
proposal, including potential restrictions on what the exchanges can and cannot
declare to be a bona fide hedge, boundless CFTC review of determinations made
by the exchanges, intrusion into the exchanges’ traditional role of granting
exemptions from their own limits (such as when those exchange limits fall below
federal limits or there are commodity contracts without a federal limit), new data
requirements, and reporting burdens.
Below are a
few examples of concerns raised in comments:
·
Restraining
Commission Reversal of Exemptions. A
common concern relates to the CFTC’s proposal to review at any time and
potentially reverse an exchange’s decision to grant an exemption. Commenters
were troubled particularly by the CFTC’s announcement that if the CFTC disagreed
with an exchange’s decision to grant an exemption, the market participant who
applied for the exemption would have to unwind its position in potentially less
than one business day. Among other
reforms, commenters suggested that: (1)
a time limit be set on Commission review to promote regulatory certainty;
(2) any Commission review be noticed to the public with an opportunity for
comments; (3) an appeals process be established; (4) a hedge be added to the CFTC’s list of
enumerated bona fide hedges for all similarly-situated hedgers to rely upon if the
Commission affirms a previously non-enumerated bona fide hedge; and (5) the
required unwind time be significantly longer than one business day, especially
when a market is illiquid or approval is necessary from an energy market
participant’s governing board or state/local regulator to change a commercial
risk management policy.
·
Expanding
list of enumerated bona fide hedges. Commenters urged the CFTC to expand
the list of enumerated bona fide hedges to include cross-commodity and
anticipatory merchandising hedges as well as to acknowledge explicitly, in the
final rule, that an “economically appropriate” hedge is not limited to a hedge
of a “price” risk and that a hedge can still be bona fide if it reduces
another type of commercial risk, such as an operational risk, product quality
risk, liquidity risk, credit risk, locational risk or timing risk.
·
Removing
quantitative correlation test. In a prior CFTC Notice of Proposed
Rulemaking (“NOPR”), the Commission proposed a quantitative correlation test
for cross-commodity hedges to ensure that “fluctuations in value of the
position in the commodity derivative contract, or the commodity underlying the
commodity derivative contract, are substantially related to the fluctuations in
value of the actual or anticipated cash position or pass-through swap.” Specifically,
pursuant to that NOPR, a cross-commodity hedge would only qualify as a bona
fide hedge if the correlation between the daily spot price series for the
target commodity and the price series for the commodity underlying the derivative
contract (or the price series for the derivative contract used to offset risk)
is at least 0.80 for at least 36 months.
Natural gas is a fuel input to electric generation and it is common for electric
utilities to engage in cross-commodity hedges.
But, this test would likely disqualify the hedging of long-term
electricity price exposure with natural gas derivatives contracts. Accordingly, commenters urged the CFTC to
clarify that the exchanges are not bound by this test and such a cross-commodity
hedge qualifies as a bona fide hedge.
·
Removing
Five-Day Hedging Restriction. Commenters
urged the Commission to eliminate a previously-proposed "five-day" restriction
from its definition of "bona fide hedging position," which would
require early liquidation of some hedges due to limiting language providing
that "no such position is maintained in any physical delivery commodity
derivative contract during the lesser of the last five days of trading or the
time period for the spot month in such physical-delivery contract" (i.e., "expiry period"). Commenters argued that this rigid limitation
is unnecessary and could leave commercial market participants exposed to risk
during the expiry period.
·
Reducing
burdens on end-users. Commenters asserted that the Commission should reduce
regulatory burdens on end-users by, for example: (1) providing a
mechanism for exchange determinations of bona fide hedges to be maintained (rather
than having to continuously re-apply for them) and extended more broadly to
other commercial firms facing similar risks (rather than limited only to the
individual applicant applying for the exemption); (2) removing unnecessary data
requirements, such as a proposed mandate that an applicant for a hedge
exemption provide three years of cash market information; (3) avoiding duplicative recordkeeping and
reporting requirements; (4) clarifying any position limits reporting forms that
are required by creating a user’s manual for the forms; and (5) phasing in
compliance deadlines.
·
Refraining
from Micromanaging Exchanges. Some commenters expressed concern that the Supplemental
Proposal intrudes too far into the exchange’s operations, with a plethora of proposed
new regulatory requirements that, at least in the absence of further clarification,
might apply not only to exemptions from federal position limits set by the CFTC
but also exemptions granted by the exchanges from their own limits. A few commenters urged the CFTC to simply use
its existing authority to review and enforce exchange rules, rather than superimpose
a new set of regulatory requirements on the exchanges.
Although it is anticipated that the CFTC may phase in
compliance requirements, energy companies should get up to speed now on the
CFTC’s proposal and ready themselves for the issuance of this final rule before
the end of the year.