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U.S. SECURITIES AND EXCHANGE COMMISSION 

MEETING OF THE SEC ADVISORY COMMITTEE
 

ON SMALL AND EMERGING COMPANIES
 

Wednesday, December 17, 2014 

9:30 a.m. 

AMENDED: 1/5/2015 

U.S. Securities and Exchange Commission
 

100 F Street, N.E., Washington, D.C
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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1 PARTICIPANTS: 1 C O N T E N T S 

2 2 PAGE 

3 Mary Jo White, Chair 3 Welcoming Remarks and Introductions 5 

4 Commissioner Luis Aguilar 4 Background on Accredited Investor Definition 

5 Commissioner Daniel Gallagher 5 from SEC Staff 44 

6 Commissioner Kara Stein 6 Presentations and Q&A on Accredited 

7 7 Investor Definition by Marianne Hudson 

8 Luis Aguilar 8 and David Certner 65 

9 Charles Baltic 9 Committee Discussion of Accredited Investor 

10 John Borer 10 Definition 129 

11 Dan Chace 11 Discussion of Next Steps 181 

12 David Certner 12 

13 Julie Davis 13 

14 Daniel Gallagher 14 

15 Stephen Graham 15 

16 Shannon Greene 16 

17 Sebastian Gomez 17 

18 Rachita Gullapalli 18 

19 Sara Hanks 19 

20 John Hemphill 20 

21 Keith Higgins 21 

22 Marianne Hudson 22 

23 Christine Jacobs 23 

24 Richard Leza 24 

25 Sonia Luna 25 

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1 PARTICIPANTS (cont.): 1 P R O C E E D I N G S 

2 2 MR. GRAHAM: So why don't we get started. I 

3 Catherine Mott 3 think it's about 9:30. I assume we have a quorum. 

4 D.J. Paul 4 MR. GOMEZ: We do. 

5 Timothy Reese 5 MR. GRAHAM: Well, I'm Stephen Graham. I'm a 

6 Javier Saade 6 partner at the law firm of Fenwick and West. I am one of 

7 Michael Seaman 7 your co-chairs, and to my left is my able co-chair. 

8 Kara Stein 8 MS. JACOBS: Thank you. Oh, Christine Jacobs. 

9 Timothy Walsh 9 I was the longest-seated female CEO of a public company 

10 Mary Jo White 10 for 20 years. My company was just purchased. I also 

11 Gregory Yadley 11 serve as a member of the Compensation and Governance 

12 12 Committee of McKesson, another New York Stock Exchange 

13 13 Company. Thank you. 

14 14 MR. GRAHAM: Thank you, Chris. 

15 15 Chair White, other commissioners, staff, those 

16 16 in the audience, I extend a welcome to today's meeting of 

17 17 the SEC's Advisory Committee on Small and Emerging 

18 18 Companies. I, of course, extend a welcome to the 

19 19 members. It's nice to see a number of familiar faces, 

20 20 and I'd like to offer a special welcome to those who are 

21 21 here for the first time as members of this committee. 

22 22 It -- this is not the best time for running off 

23 23 to Washington and having meetings. And we recognize 

24 24 that, and we appreciate your willingness to take this 

25 25 time. It's a particularly busy time of year we all know, 

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1 but I think the work of this committee is also important. 1 Chair White was appointed in March of 2013 by President 

2 And we felt it was a good idea to at least get started in 2 Obama to serve as the 31st chair of the SEC. She arrived 

3 2014 so we can hit 2015 running. 3 at the SEC with decades of experience as a federal 

4 The -- it's -- the -­ 4 prosecutor -- excuse me -- and securities lawyer. Prior 

5 ELECTRONIC VOICE: Welcome to Unified 5 to serving as the chair of the SEC, Chair White was the 

6 Conferencing. 6 U.S. Attorney for the Southern District of New York, the 

7 MR. GRAHAM: Okay. So we're not going to start 7 only woman to hold that position in the 200 year-plus 

8 all over. (Laughter.) But I just want to say that I do 8 history of the office and the chair of the litigation 

9 look forward to working with you as a team to ensure that 9 department at Debevoise & Plimpton in New York. 

10 this committee accomplishes something meaningful. 10 Chair White. 

11 (Interruption to proceedings.) 11 CHAIR WHITE: Thank you very much for that very 

12 MR. GRAHAM: That's nice. (Laughter.) That 12 kind introduction, and thank you, all of you, for being 

13 was good. I think we all agree that contributing to the 13 here today. Welcome to the meeting. I want to also 

14 facilitation, the formation of capital for small 14 extend a special welcome to the new members of the 

15 businesses is important work. Finally, I want to make 15 committee as well as those members who are returning. 

16 sure that I do thank the SEC staff. They're 16 Each of you really do bring to this committee a wealth of 

17 extraordinarily helpful. They do an incredible job. I 17 knowledge, expertise, and insights about the needs of 

18 always appreciate their incredible level of dedication as 18 small businesses and the impact that our rules at the SEC 

19 well as their professionalism. 19 can and do have on this very important part of our 

20 A couple of administrative items. Once we 20 economy. 

21 start having discussion, please, before you start 21 I know you have extraordinarily busy schedules 

22 talking, wait to be recognized, and when you're not 22 and multiple demands on your time, so I do want to 

23 talking, please make sure your mics are turned off. And 23 express my deep appreciation for your willingness to 

24 I also would ask you that you put your cell phones on 24 serve and especially to be here at this time of year, 

25 silent. 25 which I know is an -- even more difficult, although 

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1 One thing I forgot to mention as far as members 1 Stephen assures me that was part of your doing, that you 

2 are concerned is that one member that some of you may 2 did it to yourself, too. But in any event, thank you. 

3 have expected to see but you will not see is Heath 3 Your thoughts, ideas, and recommendations will help the 

4 Abshure. He resigned recently, and so therefore he will 4 Commission's thinking on many of the important issues 

5 not be serving with us. Heath was one of our observer 5 affecting small businesses. 

6 members. He was representing NASAA. Heath was with us 6 I also want to thank Stephen Graham and Chris 

7 from the beginning. He was an able contributor. We 7 Jacobs for agreeing to lead this committee again as its 

8 enjoyed working with him, we will miss him, and we wish 8 co-chairs. They really do a tremendous job. I'd also, 

9 him well. 9 as Stephen did, like to take a moment to recognize the 

10 We have a full agenda for today as we dive into 10 invaluable contributions of Heath Abshure, who yesterday 

11 the timely topic of accredited investor definition. And 11 I think announced that he will be moving on from his 

12 as we will discuss in more detail later, we will want 12 current position as Arkansas securities commissioner and 

13 this committee to formulate recommendations on the issue. 13 as the NASAA representative for this committee. 

14 And to help frame our discussion, we have arranged for 14 He's been a dedicated and energetic advocate 

15 presentations from AARP as well as the Angel Capital 15 for investors throughout this distinguished career 

16 Association. 16 starting as an SEC attorney and then as the Arkansas 

17 But first, we're honored to kick things off 17 securities commissioner and president of NASAA. He's 

18 this morning with remarks from Chair White as well as 18 always been a friend of this agency, and we'll all miss 

19 Commissioners Aguilar, Gallagher, and Stein. 19 having him on this committee as well. 

20 Commissioner Piwowar wanted to be here, but his schedule 20 Lastly, I would like also thank the staff, 

21 did not permit it, so he sends his regrets. And so with 21 Keith Higgins and the staff of the Division of 

22 that, I'm going to turn it over to Chris. 22 Corporation and Finance for their hard work in supporting 

23 MS. JACOBS: Thank you. And I would like to 23 the activities of your committee and helping to organize 

24 echo Stephen's welcome to new members and those returning 24 this meeting. I'll try to be brief in my remarks. You 

25 members. But first I'd like to introduce Chair White. 25 certainly don't need any of us to tell you that small 

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1 businesses play a crucial role in the growth of our 1 facilitate timely material disclosure by companies and 

2 nation's economy and the creation of new jobs. Small 2 shareholders' access to that information. 

3 businesses are a vital, but often under represented 3 Accredited investor, which is obviously the 

4 segment of the American economy. 4 focus of your meeting today, is a very important topic 

5 This committee plays a critical role in 5 for us as well. As you know, the Dodd-Frank Act requires 

6 ensuring that the views of small business owners, 6 the Commission to undertake a review of the accredited 

7 investors, and other stakeholders in the business 7 investor definition in its entirety as it relates to 

8 community are clearly heard by the Commission. I want to 8 natural persons. And the Commission staff, including the 

9 take just a few moments to provide you, actually, with a 9 staff from the Division of Corporation Finance as well as 

10 very brief update on a few of the initiatives that have 10 the Division of Economic and Risk Analysis is conducting 

11 been of interest to this committee starting with the JOBS 11 a comprehensive review of this definition. 

12 Act rule makings. 12 The goal of the review is to assess whether we 

13 We're working hard to finalize the JOBS Act 13 are properly identifying the population of investors who 

14 rule makings. Last summer, as you know, we adopted the 14 should be able to purchase securities in offerings 

15 final rules that eliminated general solicitation, the 15 without the protections afforded by the registration 

16 general solicitation prohibition in Rule 506 offerings 16 requirements of the Securities Act. A critical part of 

17 designed to help small business solicit new investors 17 the staff's review is soliciting and considering input 

18 more easily. We also have a pending and related rule 18 from the public and other interests parties. And again, 

19 proposal. We know many of you are eager for us to 19 there are varying views on this topic. 

20 finalize the rule makings for Regulation A-Plus, as we 20 We recently received recommendations regarding 

21 call it, and crowd funding. We are, too. We've received 21 the definition from the SEC's Investor Advisory 

22 lots of thoughtful and varying comments on both 22 Committee. Those recommendations are very helpful, and 

23 proposals. Completion of these rule makings remains an 23 we'll be very interested to hear this committee's 

24 important priority, and the staff is working very hard on 24 insights at today's meeting. 

25 the recommendations for final rules. 25 A word just about outreach. Public outreach to 

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1 Tick size, tick size is another important issue 1 small businesses really is essential to our efforts to 

2 that the committee has considered, and the Commission has 2 inform ourselves. Just last month we held our 33rd 

3 considered earlier this year. Again, I think as most of 3 Government Business Forum here at the SEC headquarters in 

4 you know, if not all of you, the Commission directed the 4 Washington. This forum brought together really from 

5 exchanges and FINRA to develop and file a plan for a 5 across the country small business executives, their 

6 pilot program that would widen the quoting and trading 6 advisors, investors, and government officials to discuss 

7 increments for certain smaller cap stocks. 7 and really think creatively about how our rules might be 

8 In November, the Commission published a notice 8 improved to help small businesses. I look forward to 

9 soliciting comment on the plan. The comment period will 9 reviewing the recommendations from the forum participants 

10 run until December 22nd, which I guess is next Monday. 10 once they have been finalized as well. 

11 We appreciate the feedback we've gotten already and 11 We also recently launched a new initiative with 

12 welcome more. I'm hopeful that a pilot program will 12 the U.S. Small Business Administration to host public 

13 yield data that will better inform our thinking about 13 events across the country, to inform small business 

14 ways to build more robust markets for smaller public 14 owners and entrepreneurs about the options for capital 

15 companies. 15 raising. SEC staff members including from our Office of 

16 Next, our disclosure effectiveness review, 16 Small Business Policy work -- are working very closely 

17 staff and the Division of Corporation Finance is 17 with the SBA staff to highlight the ways that small 

18 currently conducting a comprehensive review of the 18 businesses can raise funds and to answer questions from 

19 disclosure requirements for public companies. The goal 19 small business owners really in the field. 

20 is to find ways to improve the disclosure regime for both 20 We already have had two of these very well 

21 the benefit of companies and investors. This includes 21 attended events with more in the works to come. So let 

22 looking at whether additional scaling of disclosure 22 me stop here and thank you again for your service on this 

23 requirements for smaller companies would be appropriate. 23 committee. I look forward to receiving the report from 

24 I look forward to reviewing the staff's 24 your meeting today and continuing our dialogue to help 

25 recommendations on how to update the requirements to 25 small businesses in America. Thank you. 

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1 MS. JACOBS: Thank you. And I think I can 1 attempts to do that for individuals by focusing on 

2 speak for the committee in appreciating the update. So 2 whether an individual has either an annual income of at 

3 thank you very much. 3 least $200,000 per year or $300,000 with their spouse or 

4 Next I would like to introduce -- Keith, is 4 a net worth of at least $1 million. Generally speaking, 

5 Commissioner Aguilar on? Are we -­ 5 securities offerings made to accredited investors under 

6 COMMISSIONER AGUILAR: I am. Hopefully you can 6 Rule 506 are exempted from the registration and 

7 see me. 7 disclosure requirements of the federal securities laws, 

8 MS. JACOBS: We can. 8 and the securities purchase cannot be freely resold. 

9 COMMISSIONER AGUILAR: I'm behind you, I think. 9 Because of the importance of the accredited investor 

10 MS. JACOBS: Behind us and down the row a 10 definition, Congress has mandated that the Commission 

11 little bit, but good morning. Thank you. Commissioner 11 undertake a periodic review of the definition as applied 

12 Aguilar has been a commissioner of the SEC since 2008. 12 to natural persons to determine whether it should be 

13 Prior to serving as a commissioner, he was in private 13 modified for the protection of investors. 

14 practice specializing in securities and corporate law, 14 And notwithstanding the congressional mandate, 

15 international transactions, investment companies, and 15 there are those that think that the Commission should not 

16 investment advisors. Welcome. 16 review the income and net worth test contained in the 

17 COMMISSIONER AGUILAR: Thank you. And thank 17 accredited investor definition. The view is that we 

18 you for that introduction, and good morning to everyone. 18 should not examine a definition that identified eligible 

19 I wanted start by welcoming the members of the Advisory 19 purchasers to be millionaires and other affluent persons 

20 Committee on Small and Emerging Companies to today's 20 and that these individuals simply did not need to be 

21 meeting. Like my colleagues, I very much appreciate your 21 protected. While that may make for a nice sound bite, it 

22 efforts, and I look forward to today's discussion. And 22 simply fails to convey who is really impacted. 

23 of course, I also want to thank the staff of the Division 23 Accredited investors are not only individuals 

24 of Corporations Finance Office of Small Business Policy 

24 like Bill Gates or Warren Buffett, but rather constitute 

25 for organizing this meeting. 

25 a large pool that includes a large swath of Americans. 

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1 Since its formation in 2011, this committee has 1 For example, the following individuals would be eligible 

2 provided the Commission with advice related to privately 2 accredited investors: first, a single working parent of 

3 held small businesses and the smaller publicly traded 3 three children with an annual salary of $205,000 and 

4 companies. It is well known that these businesses have 4 likely with a home mortgage to pay; second, a recent 

5 an outside impact on the growth of our country's economy 5 widow who inherited $1 million, but is not otherwise 

6 and job creation for all Americans. And as you know, 6 earning any separate income; and third, a senior retiree 

7 today's meeting will focus on the definition of 7 who has accumulated over $1 million in his or her 

8 accredited investor, a definition that is critical to the 8 retirement account during their working life and needs 

9 Commission's Regulation D exemption from the registration 9 that money for the retirement years. 

10 requirements of the Securities Act of 1933. Regulation D 10 While these individuals qualify as accredited 

11 may be the Commission's most widely used exempted 11 investors under the income and net worth test, there is 

12 offerings, and it is regularly used by small businesses 12 nothing in definition that helps to identify whether 

13 to raised needed funds in the capital markets. 13 these individuals have the financial sophistication 

14 As many of you know, and as Chair White alluded 14 and/or investment experience to be able to assess whether 

15 to, roughly one month ago today this topic was a subject 15 any particular investment is appropriate for them. Many 

16 of a lively discussion at the Commission's Forum of Small 16 observers believe that the definition's failure to 

17 Business Capital Formation. And at the November 20th 17 consider an investor's actual financial sophistication is 

18 forum, I spoke about the urgency and importance of 18 a serious flaw. 

19 improving upon the accredited investor definition. The 19 As the SEC's own Division of Economics and 

20 accredited investor definition is critical for the 20 BRICs analysis has reported, many investors whose 

21 protection of investors. At its essence, the definition 21 financial worth gives them accredited investor status 

22 attempts to identify those individuals who are expected 22 have limited investing experience. In addition, other 

23 to be able to defend for themselves and protect their 23 studies have shown that accumulated finances will -- is 

24 interests. 24 not necessarily correlated with intelligence. One 

25 The current accredited investor definition 25 financial professional has found that -- and I quote -­

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1 "There are often people whose net worth puts them in the 1 and disclosure requirements and those who do. For those 

2 accredited category. They may be smart and successful in 2 reasons, I am pleased that this committee would today 

3 their fields, but most are confused about the basics of 3 focus the entire day on the definition of accredited 

4 investing and managing money." 4 investors, and I very much look forward to your 

5 I am supportive of the Commission's efforts to 5 discussions and recommendations. Thank you. I join 

6 review the appropriate conditions for determining whether 6 Chair White in being grateful that such busy people have 

7 someone is or is not an accredited investors. Beyond the 7 taken their time to be with us today and to share their 

8 fact that Congress has mandated a review of the 8 intellectual thoughts and their experience. I wish you a 

9 definition, it is an appropriate task to be undertaken by 9 very productive day, and thank you for having me here 

10 the agency responsible for regulating the capital 10 this morning. 

11 markets. Investors who are considered accredited under 11 MS. JACOBS: Thank you, Commissioner. We 

12 these rules are carved out from the basic investor 12 appreciate those comments, and we'll do our best today. 

13 protections that the securities laws mandate, which 13 Next I would like to introduce Commissioner 

14 regard to registered securities offerings. These 14 Daniel Gallagher. Commissioner Gallagher has been a 

15 protections, provided in part to mandatory filings and 15 commissioner of the SEC since 2011. Prior to serving as 

16 required disclosures, simply do not exist with those 16 a commissioner, he was a securities lawyer both here at 

17 deemed to be accredited investors. As a result, the 17 the SEC where he served as deputy director of the 

18 simple working parent with three children, the widow with 18 Division of Trading and Markets and in private practice. 

19 the inheritance, and the retiree all deserve the 19 Commissioner. 

20 Commission's attention to make sure that they are not 20 COMMISSIONER GALLAGHER: Well, thanks so much, 

21 made more vulnerable by an accredited investor definition 21 Chris, for that introduction. To borrow the opening words 

22 that may fail to distinguish between individuals who can 22 of my alma mater's fight song, "It's been so long since 

23 protect their own interests and those who cannot. 23 last we met." At a critical time of importance for small 

24 For these reasons, it is entirely appropriate 24 business capital formation with our implementation of the 

25 for the Commission to review whether the accredited 25 JOBS Act, it's unfortunate that the last meeting of this 

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1 investor definition is accomplishing its intended goals. 1 body or, to be precise, its predecessor, was in September 

2 Moreover, as the Commission's Investor Advisory Committee 2 2013, and I applaud Chair White for getting this on the 

3 has pointed out, the current accredited investor 3 calendar in 2014. I will be glad to see more regular 

4 definition may also be under inclusive. Potential 4 meetings in 2015. This group's work is very important, 

5 investors who most people would consider to be 5 and we do well to solicit, receive, an heed its advice. 

6 financially sophisticated, such as a chartered financial 6 Of course, today's meeting, as has been 

7 analyst or a graduate professor of corporate finance may 7 discussed, is set to discuss that old chestnut, the 

8 not have the income or the accumulated net worth to be 8 accredited investor definition. And after shocking the 

9 eligible to be accredited investors, but they may 9 attendees of the Small Business Forum last month with my 

10 actually be in a better position to protect their own 10 views on this topic, it should come as no surprise to 

11 interests. 11 those of you who follow me, that these views haven't 

12 This is why the AIC has recommended changes to 12 changed in the last few weeks. I still do not believe we 

13 the accredited investor definition that take into account 13 need to be spending our time protecting millionaires. I 

14 other ways of measuring financial sophistication. These 14 respect the views of Commissioner Aguilar, and I 

15 recommendations include assessing individual special life 15 understand why accredited folks like him want more 

16 work experience or their investment experiencing or their 16 attention. 

17 licensing or other professional credentials. 17 But the rest of us would like to focus on 

18 Ultimately, it is important that we get this 18 things like Reg A and public offerings that we are 

19 definition right. There is no doubt that the definition 19 allowed to participate in. We have Reg A-Plus to finish, 

20 for accredited investors under Rule 506 of Regulation D 20 we have venture exchanges to create. We have crowd 

21 will remain critical to the success of capital formation. 21 funding to fix. We have disclosures to scale, and the 

22 In the long run, the continued success of Rule 506 will 22 list goes on and on. So by way of priority, this at 

23 depend on whether the accredited investor definition 23 least to me, is near the bottom somewhere right above the 

24 appropriately identifies individuals who do not need the 24 pay ratio disclosure. 

25 protection of the Commission's securities, registration, 25 Nonetheless, there was one critique of my 

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Page 22 Page 24 

1 position that I did and do take to heart. Am I refusing 1 goes back to my first concern about the proper role of 

2 to consider a potential expansion of the pool of 2 government. Here it would put the government squarely in 

3 accredited investors to learned professionals and others 3 the position of dictating portfolio theory to 

4 who have the education or skills such that they, too, 4 millionaires. It's the nanny state at its worst. 

5 might be able to fend for themselves in the markets. 5 So if we could change the definition of 

6 Refusing is a strong word, and let's just say I'm 6 accredited investor by a means that does not result in a 

7 extraordinarily skeptical. 7 more intrusive role for government or involve any cutback 

8 I worry about getting the government more 8 in the number of accredited investors or quantity of 

9 deeply involved in defining who is sophisticated and who 9 investable assets today, I'd be open to having that 

10 is not. Net asset and income tests are a very hands-off, 10 debate. But so far, I have seen no indication that that 

11 unobtrusive, and value-neutral way for the government to 11 would be the case, and so I believe we should spend our 

12 define who is accredited. Having the SEC place its 12 limited bandwidth focusing on more critical matters. In 

13 imprimatur on certain forms of education or training and 13 sum, what we have by way of the accredited investor 

14 not others is a dangerous path. Do we accept FINRA or 14 definition today is good enough. It's not perfect, but 

15 CFA exams? Do we administer our own program? I have a 15 it's also not broken. So I hope you have a good 

16 better test, real world experience. 16 discussion today, but I also hope we can turn to more 

17 If a learned professional has investment 17 productive issues in the future. Thanks very much. 

18 aptitude, then what prevents him or her from prudently 18 MS. JACOBS: Thank you, Commissioner. And now 

19 building an investment portfolio in the public market 19 I would like to ask Commissioner Kara Stein to make some 

20 sufficient to pass our asset test as a ticket into the 20 comments. Commissioner Stein has been a commissioner of 

21 private markets. This operates both as proof of 21 the SEC since August 2013. Prior to serving as a 

22 knowledge and skill in investing and also as a buffer 22 commissioner, Ms. Stein served as staff director for the 

23 against risk of loss in the private markets. 23 Securities Subcommittee of the Senate Banking Committee 

24 Moreover, I am simply incredulous that an 24 where she worked on many financial service issues, 

25 expansion of the categories of persons deemed accredited 25 including the legislation that became Dodd-Frank and the 

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1 can be achieved without compromising on the asset and 1 JOBS Act. 

2 income test. It is much more likely that there would 2 Commissioner Stein. 

3 need to be a bargain which would be somewhat more 3 COMMISSIONER STEIN: Thank you, Chris. I want 

4 Faustian in nature. This seemed to me to be the clear 4 to thank everyone here for your pro bono work and for 

5 import of the SEC's Investor Advisory Committee 5 agreeing to be with us today and engage in this 

6 recommendation from earlier this year. 6 discussion and I hope many others during the course of 

7 For example, the asset test could be raised to 7 the committee's tenure. I'm -- certainly share your 

8 an inflation-adjusted $2.5 million, but I'm more 8 focus on an interesting capital formation, and I'm 

9 concerned about the effect of cutting those individuals 9 particularly interested in helping to provide more and 

10 out of the market than I am eager to try some new 10 better options for smaller businesses and for those who 

11 combination of rules that might loop some different 11 invest in them. Smart rules, smart policies around 

12 subset of people in. Just on its face, like scooting a 12 capital formation will lead to both jobs and investment 

13 successful business person with 1.5 million in assets in 13 opportunities across the country, and I think we all know 

14 order to include a first-year lawyer with $150,000 in 14 that, and that's why you're here. 

15 student loan debt doesn't seem to be a trade-off that 15 I've said this before, and I'll say it again. 

16 makes sense. 16 Over the years we've created a jumble of overlapping and 

17 Or, as some have suggested, we could tier the 17 sometimes inconsistent options for both private and 

18 asset test and tie it to investment limitations. So an 18 public capital raising. The system has become 

19 individual with barely over a million in assets could 19 increasingly complex and at times even irrational. This 

20 only invest 10 percent of their wealth. As wealth 20 potentially inhibits efficient capital formation in some 

21 increased, so would the percentage in age. While such an 21 areas, while needlessly exposing investors to undue risks 

22 approach made limited sense in the context of crowd 22 in others. We can and we should rationalize this jumble. 

23 funding or small investments across a number of companies 23 It will benefit both entrepreneurs and investors. 

24 is at the heart of that approach to capital raising. 24 Excuse me. I have a cold. I'm very focused on 

25 Importing that approach to private investments in general 25 working through these issues, and as part of that effort, 

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1 I, like my fellow commissioners, want to see the 1 today. 

2 Commission move quickly towards finalizing three very 2 Next, I would like to introduce Keith Higgins. 

3 important rules related to capital formation: ground 3 Keith is the director of the SEC's Division of Corporate 

4 funding, the new Reg A-Plus, and investor protections 4 Finance. Keith with introduce the rest of the staff 

5 under 506 -- Rule 506. I'm glad to see this committee 5 joining us today. 

6 tackling the very important issue of the definition of 6 MR. HIGGINS: Thanks, Chris. Good morning, 

7 accredited investor. I think it's an important topic 7 everyone. I'd like to add my welcome to all of you, and 

8 because it gets to the heart of how we think about 8 thank you for taking the time during this season to come 

9 investor protection, and I think part of the conversation 9 and attend this meeting and share your views with us 

10 is should we rethink that or not, especially in the space 10 today. We have a very full agenda, so I'll keep my 

11 of what divides public from private capital raising, 11 remarks brief. 

12 because to some degree, that's the been the way we've 12 Before we begin, I should start with the 

13 decided which way you capital raise and who you can raise 13 standard SEC disclaimer that the things that you'll hear 

14 from. 14 today from the SEC, the SEC staff represent their views 

15 In effect, should we be trying to protect 15 alone and don't represent the views of the Commission, 

16 people who need protection, and who are they, and how do 16 any of the commissioners, and any of our other colleagues 

17 we identify them? One of the things the Investor 17 on the staff. 

18 Advisory Committee was talking to us about was 18 So with that dispensed, let me -- since this is 

19 sophistication, which a couple of my colleagues have 19 the first meeting of this renewed committee, I thought it 

20 talked about today. And it comes in all shapes and 20 would be a good idea to go back to basics, and I pulled 

21 sizes. And another way we've talked about is through 21 out the committee charter and took a look at it. The 

22 income or net worth, either high or low. We did, I 22 committee charter, as charters tend to do, provides what 

23 think, receive very thoughtful recommendation on the 23 the objective of the committee is, and that's to provide 

24 definition of accredited investor from our investor 24 the Commission with advice on its rules, regulations and 

25 advisory committee. So if it's not in your packet, I'd 25 policies to advance the mission of the Commission, 

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1 recommend it to you to think through and comment on. 1 protecting investors, maintaining fair, orderly, and 

2 But I'm very much looking forward to your 2 efficient markets and facilitating capital formation in 

3 ideas, your analysis and recommendations today as well 3 three specific areas: capital raising, securities 

4 and whether we should be thinking about this. I think 4 trading, and public reporting of smaller private 

5 that's fair as well. Congress has asked us to think 5 companies or emerging private companies and smaller 

6 about it. That doesn't mean we need to do anything about 6 public companies. 

7 it, but it means we need to think about it, and I think 7 So the Commission is very fortunate to have 

8 it's becoming increasingly important as more of them -­ 8 such a diverse and accomplished group of representatives 

9 more and more capital raising is done in the private 9 of that community to participate on this committee. The 

10 space. I think that's part of the reason people want us 10 committee provides a mechanism through which the 

11 to have that discussion. 11 Commission can get thoughtful recommendations and advice 

12 I say this in many contexts, but I really 12 from those who are most directly affected by the rules 

13 believe we get to better public policy choices when we 13 and regulations and help us set interests and priorities 

14 hear from a variety of participants from different 14 for those important constituencies. 

15 viewpoints in the market. So I'm, again, very 15 As you commence your work in the new term, I'd 

16 appreciative that you're here today, that you're offering 16 ask that each of you, as we do, at the Commission and the 

17 us your guidance and wisdom, and I look forward to 17 staff, keep in mind in formulating the recommendations 

18 meeting each of you individually, and hopefully being 18 that the effect of the recommendations on both capital 

19 people I can reach out to to sort of think through things 19 formation and investor protection, marrying capital 

20 as we go through the process. So thank you for your 20 formation and investor protection, and finding the right 

21 time. Hopefully, we'll result in better rules and better 21 balance between those -- and we've heard a little bit 

22 policy because we're taking into account your views. 22 about it already this morning -- is really the key to 

23 MS. JACOBS: Thank you, Commissioner Stein. We 23 successful markets and a healthy economy. Before we 

24 appreciate the comments from all of the commissioners 24 start, 

25 today and showing your interest in our work as we start 25 I'd like to also thank -- be a little 

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Page 30 Page 32 

1 self-congratulatory, but really to give a shout-out to 1 MR. BALTIC: Thank you. Good morning, Chair 

2 the Office of Small Business policy here at the 2 White, Commissioners, and Committee Co-Chairs Graham and 

3 Commission. It's really the SEC's office that's the main 3 Jacobs. Thank you. I'm a new member of the committee. 

4 point of contact for small companies. It always has in 4 My name is Charles Baltic. I'm co-head of healthcare 

5 mind the interests and priorities of that constituency. 5 investment banking at Needham & Company focused on the 

6 At the same time, it works to facilitate capital 6 emerging growth companies in both healthcare and 

7 formation and consider investor protection at the same 7 technology. I've been involved in the investment banking 

8 time. 8 investment banking industry for approximately 20 years, 

9 The office answers countless questions from 9 and prior to that practiced corporate and securities law. 

10 companies and their advisors about capital raising, how 10 I also sit on the boards of a public emerging growth 

11 to raise money through exempt or a small registered 11 company, a private company, and two nonprofit 

12 offering. It plays a key role in the Commission's rule 12 organizations involved in fostering life sciences and 

13 makings, many of which were mentioned today, and acts as 13 research? Thank you. I look forward to my service on 

14 the liaison with the state securities regulators and the 14 the committee. 

15 Small Business Administration, and really day to day does 15 MS. JACOBS: Thank you. 

16 a great job of reaching out and working with and 16 John. 

17 advocating for the needs of smaller companies. 17 MR. BORER: Good morning. This is my second 

18 In addition to these efforts, the office 18 tour of duty here. I am the head of investment banking 

19 supports the work of this committee and, as Chris and 19 at the benchmark company in New York, which is a boutique 

20 Steve have noted, and it also organizes such events as 20 investment bank, educated as a lawyer, never practiced, 

21 the Government Small Business Forum on small business 21 was in commercial banking and leverage finance for 13 

22 capital formation that continuously -- where we solicit 22 years and then have been in investment banking for 23 

23 the views and recommendations from that community. 23 years since, and have also served on the boards of small 

24 So I'm joined today by two members of that 24 public companies, private companies, and taking companies 

25 office. Sebastian Gomez to my right is the chief, been 25 public, not only our own company when I was CEO at one 

Page 31 Page 33 

1 chief of the office for about a year now. And Julie 1 time, but involved in the IPO practice and raising 

2 Davis, who is special counsel in the Office of Small 2 capital principally is our business. 

3 Business Policies. So thank you two, and others -- there 3 MR. CHACE: Hi. Thanks. Dan Chace, along with 

4 are other members of the office in the audience, and I'd 4 John, my second time here. I'm a portfolio manager at 

5 like to thank them for their work. 5 Wasatch Advisors which is an investment manager in Salt 

6 So with that, I'd like to turn it back to Steve 6 Lake City focused on public markets. I manage our 

7 and Chris and kick off the more formal part of today's 7 microcap fund which is focused on the smallest public 

8 meeting. 8 companies that are out there, typically between 80 

9 MS. JACOBS: Thank you, Keith. Next we would 9 million to 600 and above. I hope to be able to 

10 like to take a short period of time, and we thought it 10 contribute in terms of prospective on those types of 

11 would be helpful to go around the room, starting with 11 issues. Thanks. 

12 you, Charles, for introductions so that we get to know 12 MS. HANKS: I'm Sara Hanks. I'm a CEO of 

13 each other as quickly as possible and get to know one 13 Crowdcheck. We do due diligence on companies raising 

14 another a little bit better and a little bit about your 14 funds in the new online investment market. I have 30 

15 relevant experience, because I think that's what's so 15 years of experience in corporate and securities matters, 

16 important right now for our work is that we have boots on 16 mostly on huge IPOs, and what we're doing now is focusing 

17 the ground experience for the topics today. 17 very much on the tiny little companies, seed-stage 

18 While you all have more experience that's going 18 companies who are encountering securities regulations for 

19 to be able to fit into the time allotted, in order to 19 the first time. 

20 keep these introductions into a 15-minute window, but we 20 MR. HEMPHILL: Hi. My name is John Hemphill. 

21 would like to ask you to introduce yourselves. 21 I'm a partner in Sheppard Mullins New York office. 

22 MR. GRAHAM: That's not 15 minutes apiece. 22 Unlike my predecessors here, I'm still a lawyer and have 

23 (Laughter.) 23 been for my entire career, and I've been working with 

24 MS. JACOBS: Isn't he a jokester? 24 small and emerging growth companies for over 20 years, 

25 MR. GRAHAM: Okay. 25 and that ranges from two kids in a dorm room all the way 

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Page 34 Page 36 

1 to smaller public companies, sometimes larger public 1 difference to this issue. I built my success as an 

2 companies. And I've also been working with Reg D since 2 entrepreneur over 21 years. I've exited both publicly 

3 October 1982 when I worked on the offering for 3 and privately through six ventures, all using Reg D as a 

4 Cablevision of Boston representing Drexel Burnham. And 4 beginning to get my ventures off the ground. 

5 that offering was interesting not only because it was 5 And my second part of my life is I've been an 

6 early on with Reg D, but it was also the company ended up 6 angel investor since 2002 and have both formally and not 

7 having over 500 investors, so it also had to register as 7 formally participated in angel funding, crowd funding, 

8 a public company. Not -- it really didn't like that very 8 and through the development of a national minority angel 

9 much either. So in any case, I'm glad to be here. Thank 9 network model focused on minorities, women, and veterans. 

10 you very much for inviting me onto the committee. 10 Thank you. 

11 MR. LEZA: Hi. I'm Richard Leza. I spent the 11 MR. WALSH: Good morning. Tim Walsh, my second 

12 first 12 years of my career and started six start-up 12 stint here on the advisory commission. I've been in the 

13 companies. Then I went over to the venture capitalists, 13 investment world for about 30 years. The first 15 was 

14 and I spent 15 years in the venture capitalist business. 14 out of Chicago. I was in the options, derivatives, and 

15 I sit on five boards, one public, two private, two -- one 15 currency markets. And the last 15 years I've had a sort 

16 educational and one non-profit, and I'm now the chairman 16 of -- as my wife would say a too varied of a career, but 

17 of Exar Corporation in Freemont, California. 17 it's encompassed from being a trustee of a pension -- a 

18 MS. LUNA: Hi. My name is Sonia Luna. I'm the 18 public pension fund in Indiana to most recently being the 

19 owner and founder of Aviva Spectrum. We're a boutique 19 CIO of the State of New Jersey $75 billion pension fund. 

20 compliance consulting firm based in sunny Los Angeles, 20 I'm currently the president of Gaw Capital. 

21 California. And our bread and butter is coming from 21 It's a commercial real estate investment firm outside of 

22 smaller reporting companies that need to comply with SOX 22 Los Angeles. I recently resigned from a public board. 

23 404 or other operational compliance issues. 23 I've been on very many private boards, and I'm currently 

24 MS. MOTT: I'm Catherine Mott. I'm the founder 24 on two advisory boards as well. And I've been an 

25 of Bluetree Allied Angels and the Bluetree Venture Fund 25 investor in small businesses. I've formed a few a few 

Page 35 Page 37 

1 in Pittsburgh, Pennsylvania. Bluetree Allied Angels was 1 years ago, and I've made money on some of them, and I've 

2 formed in October 2003 when there were about 90 2 lost money on some of them. 

3 professionally managed angel groups in the country. 3 And listening to the varied -- Commissioners 

4 Today there's over 400. Bluetree Allied Angels has 4 Aguilar to Gallagher, I'm not sure what the answer is on 

5 invested in 46 regional companies, roughly $30 million, 5 accredited investor. I did hear an interesting line 

6 so -- and have created thousands of jobs in the 6 yesterday with an investment manager in New Jersey, said 

7 Pittsburgh region. 7 that, "I'm sick and tired of billions being spent to 

8 MR. PAUL: Good morning. My name is D.J. Paul. 8 protect millionaires from billionaires." So that's maybe 

9 I'm the chief strategy officer for Propeller, which is a 9 paraphrasing Commissioner Gallagher's line. Thank you. 

10 real estate and alternative investment craft funding and 10 COMMISSIONER GALLAGHER: I think you just 

11 Reg D platform based in New York. I'm also the co-chair 11 weighed in on my side. I just want that reflected on the 

12 of CIFRA which is a craft funding advocacy organization. 12 -- (laughter). 

13 My first exposure to this was probably when I passed my 13 MR. WALSH: I feel -- Commissioner Aguilar's 

14 Series 7 and Series 63 in 1991 as a would-be 14 side is well, so I'm not sure there's an easy answer. 

15 mortgage-backed securities salesman, which I did for 15 MR. YADLEY: I'm Greg Yadley back for my second 

16 several years. 16 stint on the committee. I'm a private -- in private law 

17 And my first exposure to Reg D was when I left 17 practice in Tampa, Florida with Schumaker, Loop & and 

18 that to become an entrepreneur and actually had to go do 18 Kendrick, medium-size firm. As I was running this 

19 a raise at 27 in 1994 and that was my first introduction 19 morning by 500 North Capitol Street, I remembered back to 

20 to the rather arcane and complicated universe that we're 20 40 years ago about this time when I received my first job 

21 going to be discussing in part today. I'd like to thank 21 offer at the Commission, and my first boss was Justin 

22 all those involved for inviting me to participate, and 22 Klein, who I know Commissioner Gallagher knows, and I 

23 I'm looking forward to lending my shoulder to this. 23 have felt ever since that time that the Commission is a 

24 MR. REESE: Good morning. And thank you for 24 great agency who does an excellent job of doing its best 

25 having me. I'm here because I do want to make a 25 to protect investors. 

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Page 38 Page 40 

1 At the same time, I also learned that rules 1 government is there to de-risk some of that technology. 

2 need to work in the real world and being practical is 2 Many of those people are very excited about Title 3, 

3 very important. I also found that most people are honest 3 because the world of venture capital has changed, and I 

4 and that you need to write rules that work for most 4 hear a lot about crowd funding in Title 3 over and over 

5 people, and you need to spend certainly enforcement and 5 again. A lot of the companies that are funded through 

6 regulatory efforts for the bad guys. But if you write 6 these programs are very interested in what this committee 

7 all the rules for the bad guys, our economy will come to 7 is doing and the Commission. 

8 a halt. 8 Before I was appointed by the White House to 

9 I left the Commission and was assistant general 9 this role about a year ago, I've done a lot of different 

10 counsel at Freddie Mac, which I was proud to say. I'm 10 things. I'm kind of ADD. I started my career as an 

11 not so sure anymore after what's happened. But I spent 11 engineer at a pharmaceutical company, Abbott Labs. Then 

12 my time in private practice working on everything from 12 I did some consulting at two firms, Booz Allen Hamilton 

13 soup-to-nuts starting companies, helping them get funded, 13 and McKinsey & Company. That's kind of the first half of 

14 raising money privately, publicly, counseling boards, 14 my career was kind of big company advising. The second 

15 helping companies reorganize through the bankruptcy 15 half of my career has been investing. I have worked two 

16 process. 16 venture capital firms, one private equity firm, and one 

17 And like Tim, I've invested successfully and 17 hedge fund, and I've started three companies, two 

18 lost money and the times that I've been unhappy have been 18 spectacular failures. And I've invested in many around 

19 times when I felt that there were conflicts of interest 19 the world. 

20 where people made money on the side and where there was 20 One thing that I would like to say that I know 

21 lack of disclosure. So where I lost money because the 21 the commissioners know is that a lot of the work that's 

22 deals didn't work, that was my decision and my personal 22 done by the SEC is looked at by your counterparts all 

23 loss. So I'm probably mostly on Commissioner Gallagher's 23 around the world. I used to do deals in emerging 

24 side, but a little bit with you, Commissioner Aguilar, 24 markets, and a lot of the stuff that comes out of here 

25 too. Thank you very much for having me on the committee. 25 and the stuff that the SEC does is -- actually indeed 

Page 39 Page 41 

1 MR. SAADE: Good morning. My name is Javier 1 informs a lot of the commissions, the CBM in Brazil and 

2 Saade, and I hold an observer seat in this committee, so 2 so and so forth. So I'm very thrilled to observe this -­

3 thank you for inviting me, and I look forward to 3 in this area also. Thank you for having me. 

4 observing. I'm the associate administrator of the Small 4 MS. JACOBS: Thank you. And we are slightly 

5 Business Administration, and we are very excited to be 5 ahead of schedule, which I appreciate, but not as much as 

6 working with a lot of the folks at the SEC educating 6 your backgrounds and experience. This is going to be a 

7 folks on the new options that we're going to be talking 7 great day. We are going to -- I promise you 

8 about here and that dance that has been discussed before 8 commissioners and Chair White, we will get it up and get 

9 as to the excitement of capital formation with the 9 it down today. So thank you for staying on time and 

10 prudence you need to do to implement the rules so that 10 being brief, and at the same time giving us a sense of 

11 that balance is critical. 11 your experiences. With that now, I'm going to turn this 

12 I run a couple of programs that are relevant to 12 over to Stephen who is going to bring the issue forward 

13 this. One is called the SBIC program which is a 290 13 for today. 

14 alternative investment funds, managing about $23 billion, 14 MR. GRAHAM: Thank you, Chris, and thank you 

15 all of them doing private investments from early-stage 15 all. I mean it is clear that you represent a broad 

16 venture capital all the way to structure lending. 16 spectrum of the small business community. It is clear 

17 Another program I run is called the SBIR program. It's 17 that you have an awful lot to offer, and we all look 

18 essentially the largest seed fund in the world. It takes 18 forward to receiving your input. 

19 a slice of the federal R&D budget, which this year 19 Everyone today understands how critical it is 

20 President Obama requested 135 billion from Congress. 20 for small business to be able to raise capital. And the 

21 We're still figuring out the budget. 21 overall majority of capital raising by small and emerging 

22 But in general terms, it's basically $2 and a 22 companies is done using the safe harbors under Regulation 

23 half billion that is made as grants to companies that are 23 D, especially for rule 506(b) and the new provisions 

24 pre-commercial. So before any venture capitalist in 24 under rule 506(c) of which the accredited investor 

25 their right mind would write a check to a company, the 25 definition is of course a central component. 

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Page 42 Page 44 

1 The concept behind accredited investor is 1 year, our colleagues from the SEC's Investor Advisory 

2 intended to encompass those individuals -- entities with 2 Committee put forward a set of recommendations regarding 

3 financial sophistication and ability to sustain the risk 3 the accredited investor definition. Chair White has 

4 of loss and fend for themselves and gain access to 4 asked for our committee -- for its recommendations on 

5 information. And under the current definition, as we all 5 this topic as well. So by the end of today, I suspect 

6 know, but just to tee it up, I'll repeat it, and that is 6 that we'll be in a position to at least have a sense of 

7 that natural persons are accredited investors if their 7 this committee and be on our way to developing and 

8 income level exceeds $200,000 per year or $300,000 with 8 formulating recommendations. 

9 their wife or a million dollars net worth excluding their 9 Now we'd like to turn it over to the SEC staff. 

10 primary residence. 10 First, from the Division of Corporation Finance, which as 

11 For investors, qualifying as an accredited 11 most of you know is the division in charge of disclosure 

12 investor has significant consequences because it allows 12 operations and rule writing under the 33 Act. As Michael 

13 them to participate in investment opportunities that are 13 Seaman -- Michael is a special counsel and part of the 

14 generally not available to non-accredited investors such 14 team working on the study. Also, we have Rachita 

15 as offerings by private funds or seed investment in early 15 Gullapalli, a financial economist from the Division of 

16 stage companies. 16 Economic and Risk Analysis, which is the division in 

17 The flip side is that investors who participate 17 charge of data and economic analysis. So with that, I 

18 in unregistered offerings can be subject to increased 18 would like to turn it over to Michael and Rachita. 

19 investment risk. They generally do not receive 19 MR. SEAMAN: Thank you. I'm going to speak 

20 information comparable to that in a registration 20 very briefly this morning about some of the work that's 

21 statement, and the SEC staff does not review whatever 21 going on at the Commission with respect to the accredited 

22 information is provided to them. 22 investor definition, and then I will turn it over to 

23 For companies and other market participants, 23 Rachita to share some interesting information about the 

24 the size of the accredited investor pool is of 24 numbers the Division of Economic and Risk Analysis has 

25 significant interest, and given the critical importance 25 found. 

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Page 43 

of the exempt offering market to the economy, that 

interest is not confined to the small business community. 

The current definition was adopted by the SEC 

as has been mentioned in 1982. Many feel it is in need 

of updating, and the topic is particularly timely now 

because the Dodd-Frank Act directed the SEC to undertake 

a review of the definition as it relates to natural 

persons, and the SEC staff is currently conducting that 

review. The results will help to inform the Commission's 

considerations of possible changes to the definition. 

We have with us today as staff from the SEC's 

Division of Corporation Finance and the Division of 

Economic and Risk Analysis who are working in that study. 

They'll give us an overview of what the review 

encompasses and some of the data that they're using. 

It's important for us to remember, though, that the study 

isn't done until the Commission releases it, and these 

professional staff members can't front-run the 

commissioners. 

In other words, they won't be able to tell us 

the timing or what the conclusions will be or even what 

they think the conclusions might be, but they can give us 

an overview of the topics they're looking at as well as 

the data that will be integral to their recommendations. 

One of -- one final note. In October of this 

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As everyone knows, the Dodd-Frank Act requires 

the Commission to conduct a review of the accredited 

investor definition every four years as the definition 

applies to natural persons to determine whether the 

requirements of the definition should be adjusted or 

modified for the protection of investors in the public 

interest and in light of the economy. 

Chair White has asked the staff to conduct a 

study of the definition as part of this first required 

review. That study is ongoing now and involves staff 

members from a number of divisions and offices throughout 

the Commission. In connection with this study, the staff 

is considering the many recommendations received over the 

years regarding the definition and is considering whether 

and if so how the definition should be modified. 

More specifically the staff is considering 

whether the income and net worth thresholds should be 

adjusted or left where they are. The staff is also 

considering the manner in which those metrics are 

calculated. For example, are there components of the net 

worth threshold such as retirement assets that should be 

not included in the calculation? The staff is also 

considering whether there are alternative financial 

measures such as investment assets that could be used as 

an alternative method of qualifying as an accredited 

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Page 46 Page 48 

1 investor. 1 So not only is it a very important market for 

2 The staff is also considering whether there are 2 capital formation; it's especially important for small 

3 alternative nonfinancial attributes, the means by which 3 business capital formation. So if you broadly divide the 

4 the certain individuals could be qualified as accredited 4 market into pooled investment funds and non-fund issuers 

5 investors based on attributes that they have such as 5 -- and non-fund issuers are like operating companies and 

6 education, business experience, professional 6 financial companies -- we saw that during the period 

7 certifications, and investing experience. 7 September 2013 to September 2014, more than 70 percent of 

8 Finally, in order to provide a more complete 8 the offerings in Rule 506 market were by non-fund 

9 review, the staff is also considering the definition as 9 issuers. 

10 applied to entities. We look forward very much to the 10 And even in terms of numbers, if you see, they 

11 recommendations that this committee will provide. Thank 11 were like more than 15,000 new offerings that were 

12 you. 12 initiated by non-fund issuers. And if you look at the 

13 MS. GULLAPALLI: Thank you. I'm -- yes, 13 age profile of non-fund issuers in Rule 506 market, 

14 thanks. So I'm going to be providing some perspective on 14 almost two-thirds are like less than two of age since 

15 how the pool of accredited investors, as it pertains to 15 incorporation. And firms that are over five years of age 

16 natural persons, changes under different recommendations. 16 are less than a quarter of all non-fund issuers in the 

17 So very quickly, and then as Michael just explained and 17 Rule 506 market. 

18 as its told in the room. The accredited investor is 18 And even if you look at pooled investment fund 

19 basically an SEC-defined investor category as to who 19 issuers, they are like primarily venture capital funds, 

20 companies can sell to in their offerings under Rule 505 20 private equity funds, hedge funds, and all these issuers 

21 and Rule 506 of Regulation D. And this definition was 21 have proven to be an important source of financing for 

22 established in 1982, and the Dodd-Frank Act requires us 22 early stage, small, and immature firms. So clearly this 

23 to do a comprehensive review. 23 market has proven to be a very important source of 

24 So I'm just going to step back for the next few 24 financing for small and emerging companies. 

25 slides and provide some context about the Regulation D 25 So here I'm going to provide some information 

Page 47 Page 49 

1 market and why we consider this category of accredited 1 about investors in the Regulation D market. So all this 

2 investors to be so important. Now the chart here shows 2 information that I'm presenting here today is basically 

3 capital raisings in billions of dollars in the way -­ 3 based on Form D filings of issuers. So we find that 

4 with capital markets. As you can see, Regulation D, the 4 based on the initial Form Ds that are filed by issuers 

5 amount of capital raised has averaged about a trillion 5 for the new offerings, there are about -- they report 

6 dollars in the past three or four years, and Rule 144(a), 6 about 250,000 to 300,000 investors. And of course, this 

7 which is another private capital market, but it's 7 includes double-counting since we don't know the identity 

8 primarily brown securities, which are sold to qualified 8 of investors, and we also do not know whether these 

9 institution buyers that also has an extremely high rate 9 investors are entities or natural persons, so we don't 

10 of capital formation. 10 know the breakup. 

11 But if you want to compare Regulation D like 11 But I have provided some information on the 

12 the public markets, like in 2013, a little over a 12 average number of investors and offering by industry 

13 trillion dollars was reported to be raised in the 13 type. And as you can see, it ranges between 9 in 

14 Regulation D market. Whereas public equity and debt 14 operating companies to about 38 in banking issuers. So 

15 raisings amounted to about $1.3 trillion during the same 15 for Rule 506(b) also allows up to 35 non-accredited 

16 year. So clearly Regulation D market is a very -­ 16 investors, but less than 15 percent of offerings in any 

17 extremely important capital market in terms of financing 17 industry category, you have non-accredited investors in 

18 issuers. 18 their -- participating in their offerings. 

19 It has to be also noted that on those 99 19 And if you look at the last column, you can see 

20 percent of capital raisings in Regulation D market are 20 that the total number of non-accredited investors are 

21 made under Rule 506 offerings, which is the primary 21 really small in comparison with the total investors. So 

22 market for accredited investors. And last year a new 22 clearly accredited investors are like by far the main 

23 marker -- a new exemption, Rule 506(c) came into 23 participants in the Rule 506 market. So given this 

24 existence, and in that market, offerings are to be sold 24 context and background, and also the fact that this is a 

25 only to accredited investors. 25 private market and there is like less information, in 

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Page 50 Page 52 

1 this environment the broad characteristics that probably 1 thresholds by inflation. So the table here shows what 

2 underlie the definition of accredited investors can be 2 would happen to the thresholds if we look at them in 

3 broadly -- to see like do these investors have the 3 current dollars. 

4 sophistication to understand the risk-reward tradeoff in 4 So individual income would increase by almost 

5 any opportunity and also do they have the ability to 5 2.5 times. So from 200,000, it would be close to 500,000 

6 withstand losses. 6 in today's dollars. Joint income would amount to 

7 So in 1982 when the definition was established, 7 628,000, and net worth in today's dollars, 1 million 

8 the Commission relied in income and net worth as a proxy 8 would be equivalent to about $2.5 million. So to see how 

9 for these two characteristics. So as has already been 9 the pool is affected by these recommendations, the chart 

10 mentioned, like the standard that was established, was 10 here basically shows the different recommendations, how 

11 having individual income of at least 200,000, joined 11 the pool changes. So the lighter part of the bar shows 

12 income of at least 300,000, or net worth of $1 million, 12 how many million households qualify under the income 

13 excluding primary residence and any indebtedness 13 standard, and the darker part of the bar shows how many 

14 associated with it. 14 qualify under the net worth standard. And the slimmer 

15 So a natural question is: How many people in 15 gray bar provides information on the pool of accredited 

16 the U.S. would qualify to be accredited investors? So to 16 investors that is either under income or net worth 

17 understand that, we relied on the survey of consumer 17 standard. 

18 finances. It's a triennial survey conducted by the 18 So the first two you have already seen. Like 

19 Federal Reserve Board, and it has detailed information on 19 in 1983 about 1.5 million households qualified, and today 

20 income and financial assets of U.S. households. And the 20 like under the current standard it's about 12.4 million 

21 sampling and weighting is done in such a way that it's 21 households that qualify. The third bar shows what would 

22 representative of all households in the U.S., which 22 happen to the pool of accredited investors if we just 

23 amount to about 122.5 million in 2013. 23 adjusted inflation. So clearly the pool for both like 

24 So the last column basically shows how many 24 income-based threshold and net worth-based threshold 

25 households would qualify under each of these categories. 25 shrinks considerably. And it shrinks to about 4.4 

Page 51 Page 53 

1 So under the individual income threshold of 200,000, a 1 million households. 

2 little over eight million households would qualify, under 2 So another recommendation that has been in the 

3 the joint income, a little over four million households, 3 public domain is to adjust the net worth standard by 

4 and for the net worth of 1 million, more than 9.2 million 4 retirement assets. So retirement assets being a source 

5 households would qualify under that standard, and if you 5 of stable income for people in their golden years, they 

6 see like any under any of those standards, it would be 6 should not really be used for investment and riskier 

7 about 12.4 million households, which represents a little 7 activities. So if we look at net worth excluding 

8 over 10 percent of U.S. population in terms of 8 retirement assets, the pool shrinks even more, and the 

9 households. 9 pool of accredited investors would be about 3.8 million 

10 So for perspective, I've also provided how many 10 households. 

11 households would have qualified in 1982 when the 11 So lastly, it has been argued that income and 

12 definition was established. So again, we relied on the 12 net worth is a good proxy for ability to withstand 

13 1983 survey of consumer finances to get that information. 13 losses, but not so good a proxy for sophistication, and 

14 And as you can see -- this is the third column. As you 14 that there are better and more direct measures of 

15 can see, it was about 1.5 million households that would 15 sophistication. And some of these that have only been 

16 have qualified at that time under the definition 16 floated are like education or some professional 

17 established, which is a little less than 2 percent of 17 certification, professional experience or even investment 

18 U.S. population in terms of households. 18 experience. 

19 So as the Dodd-Frank Act requires us to review 19 So in 2007 there was a proposal to adjust the 

20 the definition, there have been a lot of recommendations 20 accredited investor definition by also including a 

21 by various entities as to how we can refine the 21 minimum investment experience standard for at least 

22 definition. So in the next few slides, we have like 22 750,000 in assets. So I've included that to see how the 

23 tried to see how the pool changes if we look at various 23 pool of accredited investors changes. So the new shaded 

24 recommendations. So one of the recommendation, which has 24 line on top basically represents the number -- the 

25 also been proposed earlier has been to adjust these 25 millions of U.S. households that would qualify under the 

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Page 54 Page 56 

1 minimum investment standard, which is about 8.9 million 1 Dodd-Frank impact. Because we don't have an 

2 households. And that would, again, increase the pool of 2 apples-to-apples comparison that way, because if you 

3 accredited investors to about 9.1 million households. 3 can't include the house, then we should be assigning a 

4 MR. WALSH: Can you explain that 750,000 4 value to the house and then taking that out on an 

5 minimum? I don't understand that. 5 inflation adjusted basis from '82 to whenever. 

6 MS. GULLAPALLI: So it's basically investments 6 And then the second question on methodology is 

7 and financial assets or other assets totaling at least 7 when you say retirement assets, we're just talking about 

8 750,000. So -­ 8 things that fall within IRA or Roth or whatever? Because 

9 MR. WALSH: I still don't understand -­ 9 it's just -- when you talk about stable -- you can put a 

10 MS. GULLAPALLI: So households invest in 10 whole load of really weird stuff into an IRA. You can 

11 various assets. It could be stocks, bonds, mutual funds, 11 put Bitcoin into -­

12 could be real estate, and so on. So the survey provides 12 (Interruption to proceedings.) 

13 us information on where individual households invest. So 13 MS. GULLAPALLI: So all the calculations that 

14 based on that, we can see how many households have 14 I've shown here excludes -­

15 investments of at least 750,000. 15 (Interruption to proceedings.) 

16 PARTICIPANT: Does that also exclusive of 16 MS. HANKS: It's censorship. 

17 equity-related investments -- primary residence, or -­ 17 MR. GRAHAM: I don't mind that -- I don't mind 

18 MS. GULLAPALLI: Yes, it excludes investment 18 music. I do mind that music. (Laughter.) 

19 and -­ 19 MS. GULLAPALLI: So yeah -- so all the 

20 PARTICIPANT: Nothing to do with 20 calculations that I've shown excludes the value of 

21 sophistication, it's just if they've been able to invest 21 primary residence from the beginning to -­

22 750,000 that they -­ 22 MS. HANKS: From the beginning to -- thank you. 

23 MS. GULLAPALLI: Right. The idea is that if 23 MS. GULLAPALLI: So the issue is that in the 

24 you have experience in investing in various assets, it 24 1983 survey of consumer finances, that information is not 

25 provides you some understanding of risk-reward tradeoffs 25 as well populated. So the numbers could be slightly 

Page 55 Page 57 

1 of investing in various assets. 1 higher, the net worth numbers than what they could be. 

2 PARTICIPANT: (Off-mic.) 2 MS. HANKS: Okay. So -- but -- so the 

3 MS. GULLAPALLI: Yes, it was a proposal in 3 methodology is good. It's just -­

4 2007. 4 MS. GULLAPALLI: But everything from there on 

5 MR. GOMEZ: If you could, when you speak, if 5 -­

6 you could turn on the mic. That way our court reporter 6 MS. HANKS: -- the basis from -­

7 could get it. 7 MS. GULLAPALLI: Exactly, yeah. It excludes 

8 MS. GULLAPALLI: Yeah. This is the last slide 8 that. And with respect to retirement accounts, yes, it 

9 I have. Basically all this was just to provide a 9 is primarily IRA or Roth accounts and so on. They 

10 perspective as to how the pool changes based on various 10 identified specifically these are retirement assets in 

11 recommendations. And as we tried to balance issuers' 11 the questionnaire. So yeah, we're able to exclude those. 

12 interest in terms of capital formation with investor 12 MR. GRAHAM: D.J. 

13 protection in terms of their suitability to invest in a 13 MR. PAUL: So my question is -- and this has 

14 less informed environment. Thanks. 14 been something that's been ongoing as some of this data 

15 MR. GRAHAM: Sure. We have time for that. 15 has been released is that we are looking at the entire 

16 Will you take some questions? 16 pool of eligible investors. 

17 MS. GULLAPALLI: Sure. 17 MS. GULLAPALLI: Right. 

18 MS. HANKS: Okay. So I've got a couple of 18 MR. PAUL: As opposed to -- and so you quite 

19 questions on methodology there. When you do the 19 definitely showed how it would be lessened if some of 

20 inflation adjusting, do you also have numbers for the 20 these suggestions were implemented. But is there data 

21 impact of taking out the principal residence under 21 available that looks at what the actual pool of not 

22 Dodd-Frank? Because I think to get a true 22 likely -- of actual investors are? Are we looking at a 

23 apples-to-apples comparison, you'd need to start with 23 lot of people that are at 220,000 in individual income or 

24 inflation adjusting and then inflation adjusting on a 24 a million two of net worth? 

25 medium house value to take out the impact of the 25 Or is it perhaps more likely -- is there any 

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Page 58 Page 60 

1 data to show that maybe most of the individual investors 1 like work experience and education, it's not available -­

2 in Reg-D actually have net worths well in excess of the 2 MS. LUNA: On that. 

3 current limit or individual income well in excess of 3 MS. GULLAPALLI: -- on a very fine level in this 

4 200,000 so that by adjusting the numbers, it might not 4 survey. 

5 have as much of a practical effect or that the market is 5 MS. LUNA: So of the three, you only took a 

6 actually adjusting for it already? Is there anything on 6 look at the investment experience? That is all? 

7 that aspect of it? 7 MS. GULLAPALLI: Right. That was the easiest 

8 MS. GULLAPALLI: Yeah, unfortunately, we do not 8 with this survey, yes. 

9 know the actual number of investors in private markets. 9 MS. LUNA: Okay. 

10 I mean even from Form D, like we get very little 10 MR. GRAHAM: I think Tim has a question. 

11 information, and we do not have any closing amendments 11 MS. REESE: Yes, thank you. Thank you. I 

12 for an offering, so we do not know like the totality of 12 don't think I said my name the first time. I'm Tim 

13 the investors. And there's no information on the 13 Reese. I just have a question. Can you help me in terms 

14 breakdown of entities and individual investors, so we 14 of the assumptions around the 750 just so I have a 

15 don't know that. 15 clarification of where do you cut off someone's personal 

16 But we can make some informed guesses as to how 16 finances and then it becomes investment finances for this 

17 many people are likely to invest in private markets, 17 calculation? 

18 which would be considerably smaller than the actual pool. 18 MS. GULLAPALLI: So the definition I meant can 

19 Like one way how can do, and we have presented this in 19 vary based on how we look at it. So I just made a few 

20 like rule making for general solicitation, the Title 2 20 assumptions and looked at financial assets, including 

21 rule making earlier, was like if you look at direct 21 real estate, but excluding primary residence. So that's 

22 equity investment as a gateway to perhaps investing in 22 what we looked at. 

23 private markets, then we did provide some data based on 23 MR. REESE: So just clarification is saying 

24 some brokerage accounts, retail brokerage accounts that 24 that if you looked at a household and to include them in 

25 the number of households that would invest in direct 25 this new number, the first thing is that the buildup, 

Page 59 Page 61 

1 equity is much smaller. 1 that they don't have to have 200,000 of income, they 

2 Like if you look at 100,000 as the minimum 2 don't have to have a joint income of 300,000, and they 

3 amount invested in retail equity, it's less than 3.3 3 don't have to have a million dollars outside of the main 

4 million households. So the actual numbers are likely to 4 property, they're included in this 750? 

5 be much smaller than the pools that I've shown here. 5 MS. GULLAPALLI: Right. Yes. 

6 MS. LUNA: So this is Sonia with Aviva 6 MR. REESE: And then so in the second portion 

7 Spectrum. I had a question. On your aged pie that you 7 of the buildup from an assumption basis, so you throw 

8 had, you had five years and you had the -- did you take a 8 everyone in, and then you look at -- and I'm asking the 

9 look at some of the dollar amounts that they were trying 9 question. It will sound like I'm -- but I just need to 

10 to raise by age group? 10 understand the assumptions -- is then you build up and 

11 MS. GULLAPALLI: I do not have a direct answer 11 you say who in America in these 125 or 122 million 

12 for that. No, we haven't done that specifically by age 12 households owns property or some other alternative 

13 group how much they're raising, but non-fund issuers tend 13 investment that could qualify them to be an investor. Is 

14 to raise much smaller amounts than fund issuers. 14 that correct? 

15 MS. LUNA: Yes. Okay. And then I had another 15 MS. GULLAPALLI: Yes, right. So we just look 

16 question. So there were -- you took apart the investment 16 at do they have assets worth 750,000, at least -­

17 experience of 750K and you showed a delta that got us to 17 MR. REESE: Or a combination. Not a single 

18 9.14. So -- or the cap was 9.4, so there was a delta of 18 asset, it could -­

19 8 million households that would be in addition. Did you 19 MS. GULLAPALLI: Right. 

20 take a look at other items such as the education 20 MR. REESE: -- be multiple assets. Okay. But 

21 certificate work experience? Did you also do an analysis 21 they can't be -- so -- but the whole criteria is they're 

22 in terms of households that would be able to meet that 22 not associated with your home. So it could be a 

23 threshold to create that delta as well? 23 building, it could be real estate, it could be a fleet of 

24 MS. GULLAPALLI: So the data that I presented 24 cars or something like that? 

25 here is based on survey of consumer finances. Data on 25 MS. GULLAPALLI: Right. I have assumed real 

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Page 62 Page 64 

1 estate to be included other than primary residence. But 1 chief financial officer of Tandy Leather Factory, 

2 of course, based on recommendations, yeah. 2 headquartered in Fort Worth, Texas. We are a very small 

3 MR. REESE: Sure. Okay. Thank you. 3 public company, run retail stores in 41 states and five 

4 MR. YADLEY: Can I ask a follow-up to that on 4 countries. 

5 the same calculation? Family businesses, would they be 5 MS. JACOBS: Thank you. And welcome. You 

6 included or excluded for the 750? 6 missed all the other great comments. We'll fill you in 

7 MS. GULLAPALLI: So in my calculation, I've 7 at lunch. 

8 included business interest, yeah. 8 Now we have two speakers slated to address the 

9 MR. GRAHAM: Okay. I think Chris has a 9 committee. We're going to begin with David Certner. We 

10 question. 10 are pleased to have with us today David, legislative 

11 MS. JACOBS: One quick question. When you were 11 counsel and legislative policy director at AARP. AARP is 

12 running comparisons of the percent of households 1982 12 a nonprofit, nonpartisan membership organization that 

13 forward or 1983 forward, did you do any kind of 13 helps people 50 and over improve the quality of their 

14 normalization for population growth so that it could 14 lives. With 40 million members, AARP advocates for 

15 appear apples to apples rather than population '82 versus 15 policies that enhance and protect the economic security 

16 today? 16 of individuals. David has been with AARP since 1982. He 

17 MS. GULLAPALLI: Yeah, so the -­ 17 has served as chairman of the ERISA advisory council of 

18 MS. JACOBS: Total population. 18 the Department of Labor and has been appointed three 

19 MS. GULLAPALLI: -- population that I looked at 19 times as a delegate to the National Summit on Retirement 

20 that time is, yeah, a lot smaller. It was like I think 20 Savings. 

21 about less than 100 million households in 1983. So 1.5 21 David, thank you in advance for joining us 

22 million households could be apples and oranges, but if 22 today. We look forward to your comments. And when 

23 you look at percentage of U.S. households, it is like 23 David's finished with his presentation, we will invite 

24 relative to what it was at that time, the total. 24 you to ask questions, comment, dialogue, and Stephen and 

25 MS. LUNA: So this is Sonia. I have another 25 I will then be watching the clock for us. So we -- if 

Page 63 Page 65 

1 question about the study. So this is an aggregate review 1 you have questions, comments, we'll invite you to make 

2 of households. Have you thought to maybe consider 2 them. 

3 looking at where those households are physically located? 3 David. 

4 For example, if we start making recommendations and we 4 MR. CERTNER: Thank you. As mentioned, my name 

5 find out really the people who meet these threshold are 5 is David Certner, and I'm the legislative counsel and 

6 all in metropolitan cities, then what we're really saying 6 legislative policy director for AARP, and I appreciate 

7 is everybody in non-metropolitan cities have to create a 7 the opportunity to join you today to discuss the issue of 

8 network outside and go to New York, LA to find the money 8 accredited investor. 

9 for those accredited investors with a new definition. 9 Let me just talk a minute about AARP's 

10 Did you take a look at kind of geographic location of 10 interest. One of AARP's central priorities is to assist 

11 changes? 11 Americans in accumulating and effectively managing 

12 MS. GULLAPALLI: Yeah, we are considering those 12 adequate retirement assets. Essential to achieving that 

13 as well, yes. 13 goal is helping individuals better manage their financial 

14 MR. GRAHAM: Okay. I want to take a -- I want 14 decisions as well as supporting efforts to protect 

15 to offer you a short break. Let's take five minutes 15 individuals from investment fraud and abuse and erode 

16 before we have our presenters. So actually about seven 16 savings and financial assets. 

17 minutes. We will reconvene promptly at 11:00. 17 But at the outset, let me make clear that AARP 

18 (A brief recess was taken.) 18 agrees that facilitating assets to capital for new and 

19 MR. GRAHAM: We'd like to reconvene. And 19 small business is a worthy goal. Small business, 

20 Chris, I'll just hand it to you. 20 including startups with high growth potential continue to 

21 MS. JACOBS: Thank you. We have since had one 21 have difficulty obtaining access to capital. We 

22 of our prior members, Shannon Greene, join us. 22 recognize this. And policy makers are certainly 

23 Shannon, in five, ten seconds, would you give 23 justified in exploring new, innovative ways to help them 

24 your background to the committee? 24 get access to capital. 

25 MS. GREENE: Ten seconds. I'm Shannon Greene, 25 However, it's imperative that we do so in a 

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Page 66 Page 68 

1 careful and deliberate fashion balancing the goals of 1 the size of which, as you know, rivals that of the public 

2 capital formation with investor protection. AARP agrees 2 markets is this matter of who qualifies as an accredited 

3 that investors should have the opportunity to invest in 3 investor and is thus able to "fend for themselves" 

4 small business, including emerging business so long as 4 without the protection of the 33 Securities Act. Now the 

5 those investors adequately understand risk and have the 5 1953 Supreme Court ruling at the availability of the 

6 financial ability to potentially absorb losses. 6 private offering exemption turns on whether the investor 

7 By definition, as you know, small and emerging 7 can "fend for themselves" have generally been interpreted 

8 businesses are risky investments. Indeed, statistics 8 as requiring the following four elements: one, the 

9 show that roughly 50 percent of small businesses fail 9 ability to hold these typically illiquid investments over 

10 from the first five years. Moreover, within this sector 10 the long term; two, the ability to withstand a total loss 

11 of small business investment, those startup businesses 11 on investment; three, an understanding of the potential 

12 with no track records are particularly speculative and 12 risks of the investment; and four, the ability to gain 

13 prone to failure. If efforts to promote access to 13 access to information needed to assess the investment. 

14 investment capital for small business are to be 14 Now these criteria seem to be generally 

15 successful, investors need to be confident that they're 15 appropriate in determining who can fend for themselves in 

16 protected to the fullest extent possible from fraud and 16 the securities market. However, the current accredited 

17 undisclosed risk. Such assurances encourage investment 17 investor definition, which intended to define a 

18 and in turn will increase the availability of investment 18 population of investors that meet the standard, uses 

19 capital. 19 financial thresholds based on both income or net worth as 

20 In proposing its rules to implement the JOBS 20 proxies for the tenets of accessed information, 

21 Act, the Commission itself acknowledged increased risk of 21 sophistication, and so forth. We believe this definition 

22 fraud associated with lifting the ban of widespread 22 is ineffective at best. 

23 marketing of securities that, by definition, are intended 23 For example, an individual with 200,000 in 

24 only for a specific segment of the investing public. 24 income but fewer or no financial assets cannot easily 

25 Unregistered securities, such as private placements, have 25 shoulder the risk associated with private offerings, 

Page 67 Page 69 

1 emerged as one of the main vehicles for fraud involving 1 particularly if that individual was near retirement. 

2 older investors. Even before the general solicitation 2 Also an individual with a million or more in relatively 

3 rules went into effect, the private placement market 3 liquid financial assets may not be able to withstand 

4 exhibited a significant amount of fraud. 4 potential losses in private offerings if that million 

5 Of the enforcement actions taken by state 5 dollars is a retirement nest egg that has been 

6 securities regulators in 2010 involving investors age 50 6 accumulated over a lifetime of savings and must provide 

7 or older, cases involving unregistered securities 7 income throughout that individual's life. 

8 outnumbered those related to ordinary stocks and bonds by 8 At the same time, many individuals who 

9 a ratio of five to one according to the North American 9 satisfied the current accredited investor definition do 

10 Securities Administrative Association. Ensuring that 10 not have the financial sophistication to assess the risks 

11 investor vulnerability in these offerings is mitigated to 11 and merit of an offering based on the limited disclosures 

12 the greatest extent possible is therefore of tremendous 12 available in private offerings. Lacking this 

13 interest to AARP. 13 sophistication, such individuals are unlikely to be able 

14 Older investors with a lifetime of savings and 14 to negotiate access to even more comprehensive 

15 investments are simply disproportionately represented 15 information. 

16 among the victims of securities fraud. Indeed, under a 16 If the current definition of an accredited 

17 recent estimate, at least one in five Americans over the 17 investor, as we believe, fails to effectively define a 

18 age of 65 have been victimized by financial fraud. And I 18 class of individuals capable of fending for themselves, 

19 think you understand this, it's older Americans, 19 then the question is: How can the definition be adjusted 

20 particularly, who have accumulated assets over a 20 to better meet its goals taking into account the reality 

21 lifetime, and quite frankly tend to sometimes be a more 21 of today's investment marketplace. So let me talk about 

22 trusting population, are often the victims of fraudulent 22 some possible approaches. 

23 actors. 23 One obvious update, as we heard this morning 

24 Now key to AARP's investor protection concerns 24 and perhaps the simplest, is simply to adjust the 

25 with respect to the growing private securities market, 25 existing thresholds. When the current thresholds were 

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Page 70 Page 72 

1 set in 1982, an income of 200,000 or millionaire status 1 individual account arrangements where individuals have to 

2 covered a relatively limited number of very well off 2 save for themselves through their 401(k) plans with that 

3 people and did not affect that many retail investors. As 3 money very often being rolled over to IRAs. 

4 you know, that dollar amount hasn't changed in the three 4 Many of you may know that actually the amount 

5 decades since while inflation has brought more and more 5 of money in IRAs now exceeds the amount of money in 

6 individuals within this definition, effectively extending 6 401(k) plans. The amount of 401(k) plans exceeds the 

7 its reach deeper into the population of those with 7 moneys in traditional defined benefit plans. So we have 

8 smaller real incomes. 8 moved almost entirely towards an individual account 

9 Indeed measures of percentage of the pool of 9 arrangement where, quite frankly, if you have accumulated 

10 individual tax payers, the number of individuals whose 10 a million dollars for retirement -- and we're going back 

11 income is 200,000 or above is now 20 times larger as we 11 to say a typical 4 percent rule I'd say, which is maybe 

12 saw this morning, at the time -- since the Regulation D. 12 throwing off for someone who has a million dollars, 

13 So raising the thresholds to account for inflation would 13 $40,000 a year -- this is not your high income person. 

14 increase these thresholds as we saw this morning in the 14 This is a person who's done the right thing with their 

15 charts by roughly two and a half times. 15 retirement savings their whole life and can be firmly 

16 Now while it may make sense to update the 16 established as a middle class person. 

17 financial thresholds, we don't believe that that approach 17 And we don't think that these are folks who are 

18 alone necessarily will resolve the shortcomings in the 18 necessarily the ones meant to be under this definition in 

19 definition. First of all, we don't really know with any 19 the first place. So we've just seen a dramatic change, I 

20 certainty whether the Commission got that threshold right 20 think, in the marketplace. 

21 in the first place. And second, many individuals who 21 If the Commission sticks with the financial 

22 meet the net worth threshold will do so based on a 22 thresholds test, therefore, we recommend that we look at 

23 retirement nest egg that they will have to rely on to 23 limiting investments and privative offerings to a 

24 last through their remaining years. 24 percentage of assets or income and that strong 

25 For example, while approximately 7 percent of 25 consideration be given to eliminating the retirement 

Page 71 Page 73 

1 all households have a net worth of 1 million or more, a 1 accounts, the net worth calculation altogether. We 

2 household headed by 65 or older meet that threshold as do 2 recognize that moving beyond the simple net income net 

3 approximately 12 percent of households headed by someone 3 worth test may add complexity to the definition and will 

4 between the ages of 50 and 64. While some of these 4 make the definition's implementation more difficult. 

5 retirees and near retirees may be able to absorb the 5 However, we believe that given the potential harm to 

6 potential losses associated with private offerings, 6 investors, these options are well worth consideration. 

7 others who may meet the threshold would see their 7 As the Investor Advisory Committee, on which an 

8 retirement security put at risk as a result of losses. 8 AARP representative does sit, noted in its discussion, 

9 Finally, the investing population has changed 9 the risks associated with investing in private offerings 

10 significantly since the 1980s with a larger percentage of 10 are greatly affected by how heavily the individual 

11 financially unsophisticated middle-income individuals 11 invests in the offerings, so that obviously an individual 

12 turning to the capital market to save for retirement than 12 with 200,000 in income who invests $5,000 is unlikely to 

13 they did 30 years ago and the complexity of financial 13 suffer irreversible harm. But the same cannot be said if 

14 products, including those sold to private offerings, has 14 you were investing 50,000 or $100,000. 

15 also grown in the intervening years. And I think this is 15 The difference in risk isn't reflected in the 

16 really a critical point here if you're thinking about 16 net worth definition either. So someone with a net worth 

17 some of these older individuals. 17 of $999,000 can't invest a dime, but someone with a net 

18 In 1982 when these definitions were first set, 18 worth of $1,000 more, a million dollars can risk it all. 

19 we essentially didn't have individual account plans like 19 To us this doesn't make sense, doesn't seem logical. We 

20 401(k) plans and IRAs, which were basically just being 20 believe it would make sense to allow some investments in 

21 put into the tax code. And I don't think anyone would 21 private securities once a person reaches an initial 

22 have foreseen some of the changes that we have seen over 22 threshold based on a percentage of income or assets with 

23 the last three decades and how people accumulate assets 23 restrictions being reduced or eliminated as income or 

24 for retirement moving away from the traditional to find 24 assets arise. 

25 benefit plan with basically annuity for life to now 25 Another problem with this definition, of 

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Page 74 

1 course, is that it treats the 1 million net worth the 

2 same for a 35 year-old and a 65 year-old. This, too, 

3 seems illogical. It's quite apparent that a 35 year-old 

4 who has accumulated that much money likely has more 

5 opportunities not only to make up money and make up 

6 losses that the person in retirement certainly does not. 

7 And so I do want to -- and this was even I think 

8 confirmed by some of the data that we saw this morning 

9 for the first time about retirement income assets and how 

10 much that has increased the number of potential people 

11 who can be in this marketplace. So we would strongly 

12 recommend excluding retirement income assets from this 

13 definition. 

14 As I said earlier, I don't think anyone would 

15 have foreseen back in 1982 how these plans would have 

16 basically exploded in growth and become the main form of 

17 retirement income. Of course, even there, we know there 

18 might be challenges associated with that. People 

19 certainly could, for example, be encouraged to remove 

20 money from an IRA in order to make an investment as an 

21 accredited investor. So we would believe we would need 

22 some protections against that as well even if we were to 

23 eliminate retirement income assets from the definition. 

24 We also encourage the Commission to consider 

25 allowing individuals to invest in private offerings upon 

Page 75 

1 the recommendations of a fiduciary advisor with no direct 

2 -- who had no direct or indirect financial stake in the 

3 offering. A fiduciary advisor would have to consider key 

4 questions related to the appropriateness of the 

5 investment, including questions like: Can you withstand 

6 potential losses? Can you deal with illiquidity? Is the 

7 investment appropriate given your financial goals and 

8 risk tolerance? And what portion of your portfolio 

9 should be invested in such assets? 

10 Finally, we agree it's worth exploring this 

11 issue also raised this morning about whether there's some 

12 way to qualify individuals as accredited investors based 

13 on their financial sophistication or knowledge and 

14 experience. Individuals who have earned certain 

15 professional credentials or have relevant professional 

16 experience may be candidates to qualify without regard to 

17 the strict income or net worth test. 

18 We understand this will be a question about 

19 line drawing how to define this, but another approach 

20 might be to enable individuals who qualify based on their 

21 investment experience, and the question is: What form 

22 and level of investment experience qualifies? We 

23 understand that, but we believe that these are certainly 

24 questions that are worth pursuing. 

25 In concluding, we believe that updating and 

Page 76 

1 strengthening the accredited investor standard to ensure 

2 it fairly reflects the financial sophistication is a key 

3 way in which the Commission can counter the adverse 

4 effect on investor protection and efficient markets that 

5 are limiting the 506 general solicitation that an 

6 advertising ban may cause. 

7 And as the Commission conducts its review of 

8 the accredited investor definition, we encourage you to 

9 fully explore whether the definition truly achieves the 

10 goal of identifying those investors who do not need the 

11 33 Act protections in order to make informed decisions 

12 and make sure that their interests are protected. 

13 We strongly encourage you to consider some of 

14 the outlines, approaches -- various approaches I've 

15 outlined as together they will better financially -­

16 protect the financial vulnerable investors without 

17 necessarily constraining the ability of capital in the 

18 private offering market. So I thank you and happy to 

19 take any questions. 

20 MR. GRAHAM: Thank you, David. 

21 D.J. 

22 MR. PAUL: Hi. Thank you for that. So just so 

23 I'm clear, the AARP is advocating for excluding 

24 retirement savings from the computation of net worth. 

25 MR. CERTNER: That's correct. 

Page 77 

1 MR. PAUL: Would AARP also support excluding 

2 the ability to invest retirement income in private 

3 placements, or is that a bridge too far? 

4 MR. CERTNER: I'm not sure what your question 

5 -- I mean obviously -- I mean most -- you're not going to 

6 -- most people are not going to have accumulated hundreds 

7 of millions of dollars in these retirement plans. They 

8 all obviously have limits of how much can go in in the 

9 first place, but we certainly -- I mean middle-income 

10 people are encouraged to shoot for a million dollars as a 

11 goal in order to provide a 40 or 50 or $60,000 a year 

12 annuity. 

13 So remember -- I mean I understand we have -­

14 most of the people in this panel have come from a 

15 securities perspective. I come from a retirement income, 

16 protect older Americans perspective. We obviously have 

17 -- we have government purposes in both. We have, as you 

18 well know, a strong regulatory and tax favored sphere of 

19 retirement income assets. So it is a governmental 

20 objective to encourage people to contribute to plans. 

21 We give them tax favored benefits, and this is 

22 all designed to ensure that people get a nice stream of 

23 retirement income. So we think that's almost a separate 

24 regime. We would very much like to see those retirement 

25 income assets pulled out of that completely. Now I think 

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Page 78 

you -- I'm not sure if you were asking whether maybe we 

could tap some of those assets if that was your question. 

MR. PAUL: If the concern is that a retirement 

income is inappropriate to -- or rather retirement assets 

shouldn't be at risk because of this so-called riskier 

pool that are Reg D offerings, why not exclude retirement 

savings from being able to be allocated towards this in 

the first place? 

MR. CERTNER: I think that certainly one idea 

to contemplate -- I mean quite frankly if people have 

$100 million and want to also use some money in their 

retirement plan, I don't know if it's that big a deal, 

but I think the blanket rule you're suggesting probably 

makes sense. 

MS. LUNA: This is Sonia with Aviva Spectrum. 

Aren't -- what checks and balances are not in place with 

a retirement account that should be there? For example, 

I thought that when someone does retire, right, and let's 

say they've accumulated a million dollars. Are you 

telling us that they could pull out 100 percent of that 

money without any penalties whatsoever? I mean usually 

there's a check and balance. You can't take out 100 

percent of your million dollars once you reach a certain 

age. There's got to be some tax penalty, isn't there? 

MR. CERTNER: Not really. I mean once you're 

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Page 80 

MR. CERTNER: I appreciate that question, and I 

was actually curious to hear some of the questions 

earlier at the panel because we don't have access to that 

detailed level information about which of the -- which 

types of securities we're talking about. And one of the 

numbers I cited was not aimed at this, but for seniors in 

general, so even those who aren't meeting this threshold. 

We know that that population is a very frequent 

target of fraud because of who they are, how much they've 

accumulated of their lifetime if they've done the right 

things. They've obviously accumulated more than 35 year 

old would have in most circumstances, and also quite 

frankly you're dealing with issues such as mental 

capacity sometimes with these folks as well. So there is 

a lot of other issues that go into play there that make 

this a target population for scams and fraudsters. 

So Catherine. 

MS. MOTT: Thank you. Actually my question was 

a follow-up to that. I really was trying -- I wanted to 

try to understand this study with the fraud cases, like 

would you be able to identify like how many of them came 

from -- the percentage that came from brokers versus from 

the issuer themselves, like the entrepreneur who's 

pitching for money. For something like that, it would 

help me understand. Or how many of them were simply 

Page 79 Page 81 

1 59 and a half, you can take your money out without any 1 fraud cases because they were excessive fees or something 

2 tax penalties. You of course would have to pay income 2 like that? If we could understand the study a bit more, 

3 taxes on any money you take out. 3 I think I would -- because the five to one seems pretty 

4 MS. LUNA: Then there is a tax penalty. If you 4 high. I don't know. I'd like -- I'd just like to 

5 take 100 percent of your -­ 5 understand. 

6 MR. CERTNER: It's not necessarily a penalty; 6 MR. CERTNER: Yeah, no that is a broader -- I'm 

7 it's a -- you have to pay income on that money whenever 7 trying to see if I can find the study here offhand -- but 

8 you take it out. 8 that's a broad issue not specific to this issue of 

9 MS. LUNA: Right. 9 accredited investor. But just making the larger point of 

10 MR. CERTNER: The sooner you take it out, the 10 how many seniors in this country are subject so financial 

11 sooner you pay taxes on it. I'm not sure I would 11 fraud and scams of any type. 

12 consider it a -- that's not a penalty. If you take it 12 MS. MOTT: So we don't even know how many of 

13 out prior to 59 and a half, there is a tax penalty of an 13 them are just -- it was just inappropriate, it was high 

14 additional 10 percent for taking that money out. 14 fees, Nigerian prince scams, or we don't know -­

15 MS. LUNA: Okay. 15 MR. CERTNER: This is the whole range of scams 

16 MR. CERTNER: Of course, you could also be 16 we're talking about. I can't tell you -­

17 investing some of this money through your individual 17 MS. MOTT: Is there some way you can get access 

18 retirement accounts, for example, in some of these 18 to the details of that? I would very much like to see 

19 offerings, too, I think. 19 that. 

20 MS. LUNA: Right. And did your organization 20 MR. CERTNER: The report that I'm referring to 

21 take a look at -- so on the financial fraud analysis that 21 is an Investor Protection Trust 2010 report that 

22 you were providing us earlier, did you take a look at how 22 estimated at least one in five Americans over the age of 

23 much of that was attributable to this type of offerings 23 65, so 7.3 million seniors in particular, have been 

24 versus let's say other types of financial fraud that are 24 victimized by financial fraud, and we'd be happy to 

25 not related to these offerings? 25 provide a copy of that report to the advisory council. 

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Page 82 Page 84 

1 MR. REESE: Yeah, this is a -­ 1 15 percent of your salary, and it's going into a default 

2 MR. CERTNER: This -- again, I want to be clear 2 target date fund where you're not even paying attention 

3 that that was -- those are -- not all those people would 3 to this thing, and it's accumulating, getting matching 

4 be subject to this definition. 4 contribution, individuals don't even have to manage their 

5 MR. GRAHAM: Can we get Tim and then go to 5 401(k)s in many cases anymore. You just put them in a 

6 Greg? 6 target date fund based on your life or balance fund, and 

7 MR. REESE: Okay. Most of my colleagues are 7 you just let it go. These are not people who are 

8 talking about the issue that's in my mind, is 8 sophisticated investors who may have accumulated a 

9 understanding what's -- I really recall that retail -­ 9 million dollars if they've done the right thing over the 

10 it's retail -- what are the retail, what are the brokers 10 time who we think should really be under this kind of a 

11 selling retail to seniors versus someone sitting in a 11 definition. 

12 room coming to hear a pitch by a private placement or 12 And I think that's a huge number and a growing 

13 going online to a portal and then being subject to fraud 13 number of people, because the IRA and 401(k) market is 

14 of that type of magnitude. I think that number is going 14 just now hitting maturity. Right? It's been in place 

15 to probably be important to understand that magnitude. 15 now for about 30 years. So going forward, I think we're 

16 And then listening to the earlier presentation 16 going to see more and more people we hope -- we're all 

17 around -- by Rachita. The number that she showed for 17 encouraging people to do the right thing and save more 

18 folks who were investing beyond their home, beyond just 18 over time because we know how much is needed. But I 

19 their home of 750,000 or so is roughly -- and so maybe 19 think we're going to see more and more people who are not 

20 these folks are below 750. Maybe they're below. Maybe 20 sophisticated investors who are not the targets, we think 

21 they're falling into fraud at a smaller number, 10,000, 21 originally, of what an accredited investor is falling 

22 5,000. I don't know the number. 22 under these definitions if it's not updated. 

23 But what it showed to me if you take her 23 MR. REESE: Thank you. 

24 numbers is that roughly 8 million -- there were 8 million 24 MR. YADLEY: Greg Yadley. When I was on the 

25 households that fit the 750,000. That's 6.5 percent of 25 staff, we were always trying to protect the little, old 

Page 83 Page 85 

1 American households. So what I would be looking for is 1 lady with tennis shoes. That was sort of what we talked 

2 something that would show the magnitude so that we can 2 about, and the wealthy widow that somebody mentioned 

3 get a better picture if it's now -- if it goes from 8 3 earlier that had no financial sophistication but now all 

4 million by adding these folks who are following into 4 of the sudden has assets. And I think your presentation 

5 these private non-retail offerings that they may produce 5 was excellent and raises a lot of good points. I think 

6 up to 32 million or something, I think that would be 6 the financial fraud data will prove that much of that is, 

7 important to understand that magnitude. 7 in fact, public market fraud and brokers who are calling 

8 MR. CERTNER: And I think -- and this was the 8 people to make investments, certainly down in Florida, 

9 first we were seeing some of the numbers this morning, 9 which a hotbed of fraud. That's a lot of what we see. 

10 because I think the first time I think I saw numbers with 10 The percentage limitation certainly has some 

11 -- if you pulled retirement accounts out what that would 11 appeal. It's easy to understand. It's rational. But 

12 mean. And I think you saw a pretty significant reduction 12 I'm troubled by what that could mean in the real world, 

13 in the number of people. 13 and remember we are talking about offerings without 

14 And I think the point that I'm trying to 14 general solicitation or up to 35 -- well, we're talking 

15 emphasize is that we -- if you go back to 1982, the 15 about 506(b), so there's no general solicitation. Okay. 

16 people who had a million dollars to invest was a much 16 At the very early stage of companies where the 

17 different story than today, that we now have what I would 17 failure rate is great, most of the investors aren't 

18 call middle-income people who have done the right thing 18 solicited; they're well known to the issuer. In fact, 

19 through their individual retirement accounts. They've 19 they're friends and family. And guess what, those people 

20 been putting in certainly -- not even hitting the 401(k) 20 are providing more than 10 or 15 percent of their net 

21 limits, but putting amounts and had matching 21 worth to their son or their daughter or their niece or 

22 contributions and diversified investments. 22 their best friend. 

23 But even more than that now, I mean if you 23 The rationale for making those investments 

24 think about what's going on and even in the 401(k) 24 isn't necessarily made because of financial 

25 universe now, if you're just contributing 10 percent or 25 sophistication. And in fact, if you get the most 

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Page 86 Page 88 

1 sophisticated investors, no matter how good the idea is, 1 in more of a plain, vanilla, 401(k) plan. These are 

2 the first thing that the better investors on this panel 2 kinds of investments that are quite frankly beyond what 

3 will tell you is you're investing in management, who they 3 they've even been exposed to, more or less really should 

4 are, and what their accomplishments have been and what 4 have their money invested in. 

5 their talents are, and you're making a bet sure on the 5 So I appreciate your question, but I think the 

6 concept or the product, but also on those people. 6 people we're talking about, these questions are well 

7 So I think we should be very cautious in having 7 beyond their level of financial sophistication. 

8 the government set percentage limitations or take away 8 MR. WALSH: But I agree with -- you're saying 

9 from the calculation retirement assets and look at the 9 -- your target audience, but as a general rule, we're not 

10 effect that that would have on early stage companies and 10 talking just retirees, but say private investments, 

11 that would just be a blow if you can't go to the people 11 that's incorrect. Depending how you want to -- if you 

12 that the issuers know the best for more than whatever the 12 look in at risk as volatility or a long-term risk 

13 government says is the correct percentage of investments. 13 adjustment return, you could probably -- two out of three 

14 MR. CERTNER: I appreciate your comment and 14 private investments have done better than public 

15 concern. I would just add that it's a very large 15 investments. That's -- you can go to various different 

16 percentage of the fraud that occurs with the elderly 16 stats on that. 

17 people, occurs through family members. 17 MR. CERTNER: Maybe I'm incorrect myself, but I 

18 MR. GRAHAM: Let's go with Charles, then back 18 was under the impression these investments were more 

19 to, Tim. 19 illiquid. 

20 MR. BALTIC: Thank you, Mr. Certner for your 20 MR. WALSH: As a general rule, you're 

21 presentation. Very thoughtful. I just wanted to ask as 21 incorrect. But where I think you are correct, and you 

22 a matter of factual history if in the buildup to 22 did make a comment that I agree 100 percent on, is the 

23 Dodd-Frank in 2010 and 2011, did the AARP weigh in in the 23 ones that are sold through non-investment advisors and 

24 legislative debate about the exclusion of retirement 24 through broker-dealers, that's something I'm with you 100 

25 assets from the definition of accredited investor at that 25 percent. I mean 10 percent lows on these things with 

Page 87 Page 89 

1 time as we ultimately know primary residence value was 1 usurious expenses, that's a different -- but to just 

2 excluded from the definition? And if you did weigh in, 2 carte blanche say that private investments are risky in 

3 what was the consideration around that, and how was it 3 my opinion is incorrect. 

4 disposed of? 4 I invested in New Jersey and Indiana billions 

5 MR. CERTNER: I don't believe that we weighed 5 of dollars both in public and private, and the concept, 

6 in at that issue at that time. I wish we probably had 6 as Greg was saying, it's really the management team 

7 seen more of where we were headed and maybe had raised 7 you're backing. Great public ones you trust -- I mean 

8 that earlier, but we have raised the issue about 8 there's a lot of poor public ones out there, too, as well 

9 retirement assets in other contexts in trying to protect 9 as private, but that one is one that I think you're 100 

10 it, but not in this instance. 10 percent correct on. I'd love you to spend your resources 

11 MR. GRAHAM: Tim. 11 focusing on that because of the -- these -- there's many 

12 MR. WALSH: Good morning. Why do you say that 12 of these retail retirees and non-retirees get sold these 

13 private investments are riskier than public investments? 13 private investments with 10 percent commissions going in 

14 And how do you define risk? 14 and 2 to 300 basis points annuals in poor performance, 

15 MR. CERTNER: Well, I think this is -- I mean 15 too. 

16 it's a good question, but if you're talking about the 16 MR. CERTNER: I think you're just raising 

17 people I'm talking about, which is folks who really don't 17 another issue we're talking to the Commission about right 

18 have the financial sophistication, then these are not 18 now in terms of making sure people are investing in the 

19 even questions I think they could ask, more or less 19 best interests of their clients. 

20 answer. So I appreciate your question to me. 20 MS. HANKS: Just to go back to the fraud issue, 

21 I don't know if I can give you the right 21 do you have any data on the correlation of fraud on 

22 definitions for risk or talk about what's available in 22 seniors and whether or not they fall on one side or the 

23 the marketplace, but for most of the people we're talking 23 other of the accredited definition? Because it seems to 

24 about who have grown up in a -- particularly in a 24 me that it's quite possible -- when you commit fraud on 

25 retirement, income, and asset world, have really grown up 25 seniors, you're just taking advantage of their age and 

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Page 90 Page 92 

1 their inability to assess the situation as opposed to 1 just simply inappropriate. And that's really what we're 

2 whether they are or are not accredited. I think a lot of 2 talking about, thinking more than anything else, because 

3 fraudsters are not actually doing the calculation as to 3 some of the things that Mr. Walsh was referring to and 

4 whether they're accredited or not. Any data on that? 4 some of the high fees or certainly lower returns and 

5 MR. CERTNER: I don't know that I've seen any 5 someone who -- taking advantage of people. Some of these 

6 data on that, so I don't think there's any available that 6 things are not illegal. They're certainly inappropriate, 

7 I'm aware of. And part of our concern, of course, here 7 perhaps immoral, but they're permitted, and you're taking 

8 is that we think the number of people who are 8 advantage of basically investors who are not 

9 accumulating these sort of individual retirement accounts 9 sophisticated and cannot absorb the losses if you want to 

10 will be growing I the future and that we'll have more and 10 go with these definitions. 

11 more people who would meet the -- at least the million 11 MR. GRAHAM: Okay. Let's take one more 

12 dollar test here, a million dollars, which is really a 12 question, and then we'll -­

13 retirement account that we really think is not by 13 MR. LEZA: It's not a question, but a basic 

14 definition of a sophisticated investor who can fend for 14 point. In Northern California, they did the analysis 

15 themselves. 15 just to see on the 506 for accredited investors as what 

16 MS. HANKS: But it would seem like the bad guys 16 kind of fraud they were seeing. This was done about two 

17 are not going to sit down with a calculation of whether 17 years ago. And they basically from the data that they 

18 you're a one million or two million or whatever. They're 18 got, they found zero. So a lot of the scams are 

19 just going to sit down and go you're old so I'm going to 19 happening to the non-accredited investors. Okay? 

20 take advantage of you. 20 MR. GRAHAM: Thank you, Richard. 

21 MR. CERTNER: Well, that's part of it, too. 21 Thank you, David. 

22 You would not believe how sophisticated some of these 22 MR. CERTNER: Thank you very much for your 

23 fraudsters are. It's just incredible how many scams -­ 23 time. 

24 we have a whole fraud watch network that we've been 24 MR. GRAHAM: We're going to move into our next 

25 developing, and it's really just absolutely incredible to 25 speaker. 

Page 91 Page 93 

1 us the kinds of things that we see and then you shut one 1 MS. JACOBS: Marianne Hudson. Good morning, 

2 scam down, another one grows up, and they're really 2 and thank you for coming. We're pleased to have with us 

3 incredible. They're very sophisticated. 3 today Marianne Hudson, the executive director of the 

4 MR. GRAHAM: D.J. 4 Angel Capital Association. The Angel Capital Association 

5 MR. PAUL: Yeah, just I think that we're 5 is a professional and trade organization supporting the 

6 talking about -- first of all, fraud, what's illegal is 6 success of angel investors in high-growth, early stage 

7 illegal, it's always going to be illegal, and someone who 7 ventures. ACA's membership includes more than 160 groups 

8 is inclined to commit such a fraud is not going to be 8 and 20 affiliate organizations across North America. The 

9 dissuaded by raising a limitation, particularly in the 9 member angel groups represent more than 7,000 accredited 

10 506(b) universe where it's a box check. So I'm not sure 10 investors and are funding approximately 800 new companies 

11 if this would -- I appreciate the goal, I agree with the 11 per year and managing an ongoing portfolio of more than 

12 goal, but I'm not sure whether or not playing with the 12 5,000 companies. Prior to her current position, Marianne 

13 definition, at least with respect to the dollar amount 13 was the entrepreneurship director at the Kauffman 

14 limitations, is going to have a real impact on someone 14 Foundation, and prior to that she was VP of the 

15 who is dead set on committing fraud on -- elder fraud. 15 Mid-America Manufacturing Technology Center. 

16 I don't think they're going, oh, okay, well now 16 Marianne, welcome. Thank you for coming today. 

17 it's 2 million or whatever the number is, now I'm not 17 MS. HUDSON: Thanks so much for having me. I'm 

18 going to make that phone call. So that's -- I'm not sure 18 really thrilled to be here and really appreciate the work 

19 that this is going to achieve the end -- that this might 19 the Commission is doing. We've really enjoyed working 

20 achieve the end that -- your worthy end that you're 20 with the staff in particular. I had the opportunity, I 

21 trying to achieve. 21 guess, to be at the most -- at the last meeting, so thank 

22 MR. CERTNER: And let me be clear here. Fraud 22 you for inviting me again from September. So I do come 

23 is obviously a problem and a big problem and one we're 23 with a slide deck. I'll try to get through it quickly 

24 concerned about, but it's not just fraud. There are many 24 and look forward to the dialogue. 

25 things that are not fraudulent that are legal that are 25 So just to maybe update you on the Angel 

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Page 94 Page 96 

1 Capital Association, we have 12,000 member angels doing 1 we're really talking about private offerings on the 

2 -- in about 208 angel groups and angel platforms. Our 2 equity side. Private equity is probably pushing $350 

3 members are individual angels, those who belong to 3 million. And if you're looking at Reg D or private 

4 groups, and those who belong to accredited platforms, 4 offerings, I know it's more than a trillion dollars. So 

5 angel list, funders club, and organizations like that, 5 yes, we are a small piece of that, but we think we're 

6 and we're really here to help them be better angels and 6 pretty important in there, because we are driving most of 

7 kind of be their voice so that they can be -- they can 7 the startup funding that's available. 

8 select the best opportunities, they can support the 8 Estimates are last year that angels invested 

9 entrepreneurs that lead them to the best exits. And our 9 about $25 billion and about 71,000 deals. Actually there 

10 members are in every state and actually a few Canadian 10 might be more -- fewer companies there. Majority of net 

11 provinces. 11 new jobs really come from those startups, so companies 

12 I'm going to just tell you up front we have 12 are less than five years old, and most of those are 

13 three main recommendations as it relates to the 13 getting their capital from angels if they have equity 

14 accredited investor definition. The first one is to 14 capital before they go to the VC round. And we believe 

15 leave the thresholds -- the financial thresholds as they 15 that angels provide about 90 percent of the outside 

16 are. We think they work well, particularly in the angel 16 equity raised by startups. So after friends and family, 

17 field, and I'll have some data to talk about that, and 17 angels are putting in that money. And then we're hoping 

18 we're not seeing fraud in our area. And we really 18 that the companies that do well go onto VC money to 

19 believe that if you increased those financial thresholds 19 expand. 

20 for inflation, it would have a huge impact on the market, 20 We're taking our own money and making our own 

21 particularly for the startups that create the jobs in 21 investment choices, and while data is still developing on 

22 this country. 22 angel investing, there's somewhere between 200,000 and 

23 The second one is to consider adding 23 300,000 angels across the country pretty much everywhere. 

24 sophistication criteria to grow the base of individuals 24 And we really think that these startups are important 

25 who don't meet those thresholds, but to make sure that 25 that I just talked about because they're creating the 

Page 95 Page 97 

1 you put things together that are somewhat simple to 1 most net new jobs in the country. 

2 administer and that the market understands and to make 2 This is a chart from the Kauffman Foundation 

3 sure that there's multiple criteria that are available so 3 from a few years ago looking at 25-year timespan, really 

4 you don't hem certain people out of being sophisticated. 4 found that the blue is the job creation that came from 

5 And the last one is to I guess really expand 5 startups, and the red is from job creation from everyone 

6 investor education that's available, make it free, and 6 else. So really it's -- if you take out the startups, 

7 make it easier for more people to find it. So I'll come 7 we're actually losing jobs even in some good economy 

8 back to those in more detail in a little bit. But if we 8 years. 

9 just think about the life of a company, they're getting 9 So we're focusing on the startups, and then 

10 money and growth throughout the time. So as they're 10 we're combining with the venture capitalists to take the 

11 coming up with ideas, they're working with their own 11 most successful startups and really expand where they're 

12 money, the friends and family, which actually we 12 going, and so we're helping create those billion dollar 

13 understand to be something like $60 billion a year to 13 companies that are creating jobs pretty much as we come 

14 support those organizations. 14 out after the fifth year, and a lot of those companies 

15 And then as they grow, they start getting 15 are some of the brand names that you've heard about. So 

16 capital from angels and angel groups, seed funds, and 16 angel backing started groups like Facebook and companies 

17 then once they really have a product ready to go, they 17 you may not even kind of think about that much like Home 

18 might be getting venture capital and moving onto a lot of 18 Depot or Best Buy. But a lot of them are tech or life 

19 other institutional equity. Now hopefully, eventually 19 science based. 

20 you get -- start working with the investment bankers down 20 And just kind of quick thing to think about 

21 the way there so that they're acquired or go public. 21 where startups get their funding, angels and venture 

22 Maybe to put in context a little bit, too, I'm 22 capitalists are investing about the same amount of money 

23 talking about an estimated market really of $25 billion 23 per year in total, but we're seeing that angels are 

24 which we think of as real important money and certain 24 making smaller deals, so 71,000 a year as opposed to 

25 venture capital which is about the same size. I know 25 venture capital, which is about 4,000 a year. So they're 

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Page 98 Page 100 

1 really focusing on the expansion capital. And I think 1 have information rights, and typically if we're enough 

2 these slides will be available for you at some point. 2 into the deal -- we're on the board or an observer, and 

3 Another thing to think about is that a trend in 3 we're just working directly between the investors and the 

4 angel investing is the formation of angel groups where 4 issuers. We're really not working with intermediaries. 

5 people typically in one community kind of pull together 5 And finally, I mean I think that's a way that 

6 to look at investments together, learn from each other, 6 groups are working. We're seeing accredited platforms 

7 and combine their capital and find a way to work with the 7 are working very well, too. They found super experienced 

8 companies together. In fact, I'll talk about that a 8 angels who are doing a lot of that work and allowing some 

9 little bit here. 9 smart people to follow on with them with additional 

10 So if we think about it, sophisticated angel 10 information. And we're finding kind of over time -- some 

11 investing is really hands-on work. So we're not just 11 studies from Harvard and MIT are finding that when we as 

12 writing a check. We're providing ongoing support, 12 angels get involved, the entrepreneurs are going to be a 

13 mentoring, we're on their boards, we're helping them 13 lot more successful. 

14 figure out getting customers, finding the right people 14 So we do have -- I'm going to click through 

15 and additional capital as they grow. And we're working 15 this very fast. We do have a couple stats just to kind 

16 hand in hand. We're part of the ecosystem of these 16 of get you kind of a background on angel group 

17 communities. We're working with universities' economic 17 investment. And it's called the HALO Report. It's now a 

18 development, accelerators and incubators and figuring out 18 three-year study that comes up quarterly that's a 

19 a way to support these companies throughout their life 19 combination of the Angel Resource Institute, CB Insights, 

20 cycle. 20 and Silicon Valley Bank. I'll just show you a little 

21 But we're really focusing on having the best 21 bit. So for -- we're just looking at 2013. It looks 

22 practices for active deal and risk assessment. So we're 22 like the average-size angel group deal is about $600,000, 

23 taking in deals, and we have strong processes to look at 23 or if we co-invest with a venture capitalist, it's just 

24 how these deals are going to work. Do they have the 24 under a million dollars. And it's been that way for the 

25 right entrepreneurs? Do they have great markets to grow? 25 last three years. 

Page 99 Page 101 

1 And so that does mean that we're funding probably few 1 Where we invest -- this is a map from 2013 -­

2 than 5 percent of the opportunities that we're seeing and 2 you can see that angel investing really is not just in 

3 really understanding from our own experience how we can 3 the typical venture areas of California, New York, and 

4 support those companies. 4 Boston. It's really all over the country. That's both 

5 So we're really seeing almost no fraud in what 5 by deal and by dollar. That's one of the reasons I love 

6 we're doing based on the processes we have, the 6 being an angel investor. 

7 relationships that we have. In fact, it's kind of hard 7 When you look at the sectors that we're in, 

8 to prove a negative. I just really haven't seen fraud in 8 this is kind of a busy chart, so I'll make sure you have 

9 our industry. I've taken a few calls in my job over the 9 copies of this to look at, but the point is that 

10 last ten years about fraud, and the couple times I can 10 internet, kind of IT, healthcare, which would be both -­

11 remember, it was entrepreneurs who are approached by 11 internet, healthcare, and mobile are two-thirds to 

12 people representing themselves as advisors and thinking 12 three-quarters of our investments for the last three 

13 something sounded funny in what they were hearing about 13 years, and it's flipped a little bit with growth really 

14 fees and a couple times a similar situation on the 14 coming in mobile. And so we're really looking for the 

15 investor side. So we're trying to be able to give them 15 kinds of companies that can scale and deliver some 

16 the best information that we can and follow your gut if 16 returns. And that was in terms of deals. This is in 

17 you're calling me about that. But we're just not seeing 17 terms of dollars, and the numbers really go up. So last 

18 the fraud. 18 year, those three sectors that I mentioned were 80 

19 We're also working on extensive due diligence. 19 percent of the deals in this data set that we have. 

20 We have put together a lot of education on how to do that 20 The other thing is we're really trying to make 

21 and really understanding the entrepreneurs doing 21 sure we have good data and best practices that we can 

22 background checks and understanding their capabilities. 22 learn from. This is a somewhat old study, but this is 

23 And then also putting together the terms of the deal, so 23 what we know about risks and returns for angels. So this 

24 the issuers aren't setting those. We are, and we're 24 data set had I think more than 600 investors who had done 

25 negotiating those together. We're making sure that we 25 more than 3,000 deals, but about 1,300 of them had exited 

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Page 102 Page 104 

1 at this point, good and bad. 1 thresholds alone. I think I've talked a little bit about 

2 So we found in this dataset that 52 percent of 2 that. We really do think the issue is it would have a 

3 the investments had lost some or all of their money. The 3 major market impact and reduce the pool of capital for 

4 businesses went out of business. And -- but they did 4 entrepreneurs that we think are incredible important for 

5 that in three years or so, whereas over to the right, 5 the economy. 

6 just under 8 percent of those deals had a 10X 6 So we actually took a look at our own data, our 

7 cash-on-cash return or more and provided the vast 7 own membership. We did a survey about a year ago. We 

8 majority of the return. 8 had 109 accredited investors who are writing checks. 

9 We were able to kind of look at that as a 9 They're located in 41 states and a great range of ages. 

10 portfolio in understanding the IRR, but I think the point 10 I believe the average age of investor here was 58, 

11 we wanted to do was really understand the risk that was 11 58-plus, something like that. So we found if you raised 

12 there, and the education we've pulled from that is if you 12 them for inflation, which we understood to be 400,000 in 

13 as an angel investor could understand the risk that's 13 income and 2 and a half million in net worth, we found 

14 there we're recommending that you make multiple 14 that a lot of our members did continue to qualify, but 

15 investments and use certain processes that are there. 15 that there would be 28 percent that would no long 

16 And if we had more time, I could show you more of what 16 qualify. I happen to be one of those people. So I guess 

17 we've learned, but we're really trying to build from data 17 I have a personal interest in making sure that that 

18 and understanding and hope to have a new study next year. 18 doesn't happen. But we try really to have our data and 

19 So that's just a little background on angel 19 really compare it, who met one or the other or both. So 

20 investing. So let me just get to a little bit about the 20 we do skew a little bit larger than the numbers that we 

21 impact of the definitions that we're thinking about. So 21 saw this morning. 

22 if we think about the regulatory objectives that we've 22 We also wanted to understand what the impact 

23 heard, I think we've heard a lot about that today. It's 23 would be if it was raised on a geographic level. And so 

24 about investor protection, it's about capital formation 24 what we really found is that if you were in California, 

25 and just good integrity in the market. 25 New York, or New England, that took out about 26 percent 

Page 103 Page 105 

1 I think our goals are somewhat similar, but 1 of the investors, and if you were pretty much anywhere 

2 I'll kind of take them out a little bit more. So we want 2 else in the rest of the country, that would affect 32 

3 to make sure that knowledgeable investors that fund 3 percent, so basically a quarter versus a third, which we 

4 startups can keep doing that because we think it's 4 think is a pretty big deal in important parts of the 

5 important to job creation and the economy. And we want 5 country. 

6 to make sure there aren't undue obstacles for that 6 Kind of as an aside, too, we also saw a skewing 

7 relationship so that we can keep funding those important 7 that the impact would be a little bit more on women and 

8 companies. And we want to make sure there's good 8 also younger people. So we found that there was an 

9 education and best practices to make sure that the number 9 average age of about 48 for people who were qualifying by 

10 of sophisticated investors grows. 10 income, but not net worth. And they seem to have been 

11 And if we look at 2010 Dodd-Frank, we think 11 impacted just a slight amount more, so something else to 

12 about that, I think we find that removing the primary 12 think about as I think a lot of younger people are 

13 residence that started the conversation in 2010 and came 13 starting to get involved in supporting startups. 

14 into effect in 2011 was a major shift. The data we've 14 We also thought we'd take a look at some of our 

15 seen was that that cut back about 20 percent of eligible 15 members and what they did. So AngelList is one of our 

16 households that were there. I guess the other things I'd 16 members, the largest accredited platform. They have 

17 want to remind you is that the act asks the SEC to review 17 created a term they call mere accredited, which I guess 

18 it, and I think it sounds like we're doing some really 18 I'll say is just somebody who meets the -- who's at the 

19 good work there, but not necessarily to alter it. Take a 19 lower end and would be basically wiped out if they had -­

20 look at that combination of investor protection, public 20 they have less than $2 million in net worth. So they 

21 interest, and the economic environment that we're 21 found that they had about 46 percent of their members who 

22 participating in. 22 qualify by net worth just at kind of $2 million or less, 

23 So I'm going to go back to those three 23 and I think that funded about 23 percent of their 

24 recommendations and put a little bit of data behind it. 24 investments. 

25 So our first recommendation, again, is to leave the 25 Our second recommendation is to think about 

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Page 106 Page 108 

1 adding sophistication criteria to expand the class. We 1 experience from founding companies to being tech execs to 

2 really do think there are some smart people out there who 2 founding companies. They're entrepreneurs, and they 

3 are left out, or I suppose I put it this way, too. If 3 understand the class. 

4 there were some changes to the thresholds, perhaps this 4 Our last recommendation is really to think even 

5 is a way to make sure you keep the class at the same size 5 more about education. It was neat to hear this morning 

6 as it is. So we're talking about people who have -- who 6 about the partnership between the SEC and SBA to do a lot 

7 really understand the industry. So they've been on a 7 of education, and I know there's a lot more out there. 

8 board or an executive or financial responsibility -- P&L 8 But if we could just think creatively about more ways to 

9 responsibility at a for-profit company. Or they've got 9 get education to the people where they are, easy and 

10 relevant degree or training, so they've been in a -­ 10 free, I think that brings more education. An example is 

11 they've had MBA finance training, or they have some 11 the Kauffman Foundation's Investor IQ program, which is a 

12 certification, CPA, that kind of thing, previous 12 free web-based program that really helps you understand 

13 investment as a Reg D offering, and membership in an 13 where you stand sophistication-wise now, what your gaps 

14 established angel group, which has the strong processes 14 are, and then provide you some education via reading and 

15 I've talked about not just in investment, but how they 15 some really cool videos. And I'm sure that there's a lot 

16 make sure that their members are accredited. 16 of other things that could be done there. But we need to 

17 And we think it's important to have a simple 17 think more about how do we get that information to the 

18 way to look at the sophistication. So have them 18 right set of people. 

19 certified via detailed questionnaire -- this is 19 I would also just comment that the 506(c) issue 

20 information we've provided to the SEC before -- just to 20 or verification does complicate things and has us 

21 validate the sophistication and just make it reasonable 21 thinking the way we are. So if you just think about the 

22 for administration. The other point would be once you've 22 verification that's required there, you already have to 

23 done one of these things from experience or education, 23 kind of think about how you're going to verify whether 

24 you're accredited for life. No need to kind of 24 somebody is an accredited investor. And so if I think 

25 continually do that. 25 about some of the other limitations that we've talked 

Page 107 Page 109 

1 This is not readable, but it is kind of a -­ 1 about today, we start thinking, well, how are you going 

2 basically what we actually submitted to the SEC before as 2 to verify that. And so that makes us want to be I think 

3 a potential certification form. So kind of somewhat 3 a little bit more simple in our recommendations, and it 

4 similar to the past self-certification, check the box. 4 probably relates to just a few comments on the Investor 

5 But you could probably add with that easy checks, like 5 Advisor Committee recommendations. 

6 these days it's easy to see things by LinkedIn and other 6 I think removing retirement assets from the net 

7 publicly available databases. And we think -- maybe this 7 worth calculation is very problematic for us. There's a 

8 is not only common sense, but common ground for thinking 8 lot of sophisticated angels who invest in those -­

9 through sophistication. 9 through their accounts, and you'd be surprised of the 

10 Maybe this does work for a lot of people with 10 people who do that, and many of them have been advised by 

11 different views on this issue. From the same database 11 their tax experts to make those investments through Roth 

12 and the same research that I talked about about a year 12 IRAs or others. And remember, we've got a lot of them 

13 ago, this is our membership. We took a look at, well, 13 that are in the older categories. So I do think that 

14 how would we meet some of these requirements. So we 14 would wipe out a lot of people, and it would already take 

15 really found if you take away past investment, I think 15 out a lot of people who already make their investments 

16 it's 95 percent of our members would hit one of those 16 through that. 

17 criteria that I talked about. So they've been a board 17 Kind of two other things to say. The IAC did 

18 member of a for-profit entity more than 60 percent, or 18 recommend finalizing the proposed rule about Regulation D 

19 they hold a business degree, which is more than 50 19 and Form D providing 15-day advanced Form Ds, et cetera, 

20 percent, and certainly more about two-thirds have held a 20 and we think that that is unworkable in the startup 

21 C-level position or a P&L position in a company. So I 21 arena. It might work in other areas, but we would not 

22 think those are common sense and easy things to work 22 like to see that. And any other thing we would say is if 

23 through. 23 the SEC did decide to make some big changes, we do think 

24 AngelList looked at similar sophistication and 24 they should be phased in gradually so that there's not a 

25 really found that a lot of its members had a lot of past 25 huge disruption of the private market. So kind of think 

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Page 110 Page 112 

1 about that. 1 -- angel groups in those communities so they can support 

2 So thank you for your having me be here. I 2 those companies. And we're starting to find that angel 

3 think we really believe in keeping the thresholds as they 3 groups are around up several rounds and are really the 

4 are. We like the idea of sophistication and education, 4 support for those companies. 

5 and I'm here to take questions. 5 MR. GRAHAM: Dan, did I -­

6 MR. GRAHAM: Thank you, Marianne. I'm sure we 6 MS. HUDSON: Did that answer your question? 

7 have some questions. 7 MR. BALTIC: Yeah. 

8 Sara. 8 MR. CHACE: So it sounds to me like angels are 

9 MS. HANKS: A quick one. Do you have any data 9 a relatively sophisticated subset of the broader Reg D 

10 on ACA members who do hold their angel investments 10 market. 

11 through retirement funds? 11 MS. HUDSON: Correct. 

12 MS. HUDSON: Not very good. We have anecdotal 12 MR. CHACE: And so you see them as a proxy. 

13 information. Unfortunately we did not collect that in 13 How do individual angels treat the typical investment in 

14 the study I had, but probably one we could do down the 14 terms of dollars? Like what's the median? And how many 

15 road. 15 of -- how diversified are they across investments? 

16 MS. HANKS: Be nice to have. 16 MS. HUDSON: So I think that is -- that range 

17 MS. HUDSON: I agree. 17 isn't known exactly, but I think the typical individual 

18 MR. GRAHAM: Charles. 18 investment would be somewhere between 5,000 and $25,000, 

19 MR. BALTIC: Thank you, Ms. Hudson. Very 19 but the range can be quite wide. So you'll find in a 

20 comprehensive and informative presentation. I noted the 20 group -- so the typical investment is $600,000. So 

21 data around the job creation from the companies that are 21 that's a lot of individuals, and it's probably four or 

22 fostered by angel investments and also the data around 22 five angel groups. We're seeing -- in my angel group, 

23 geographic diversity or dispersion of angel investing. I 23 which is the Women's Capital Connection of Kansas City, I 

24 was wondering if you had a perspective on institutional 24 think the average individual investment is $14,000 per 

25 VC capital in terms of geographic dispersion. My own 25 person, but the minimum investment is $5,000. And we're 

Page 111 Page 113 

1 experience is that it's heavy concentrated on the coasts, 1 seeing that happen in some groups. And on the AngelList, 

2 much less evenly balanced than angel capital, and I'd 2 I don't know what the average size investment, but the 

3 like to know if you have a perspective on that and how 3 minimum is 1,000. 

4 that relates to balancing out economic development 4 MR. GRAHAM: John. 

5 nationwide as opposed to in centers of financial -­ 5 MR. HEMPHILL: Hi. Thank you very much for all 

6 MS. HUDSON: No, I mean I think I agree with 6 this information. It's really very enlightening. I -­

7 you, and I think the data shows that the vast majority of 7 one question I have for you is you mentioned -- a lot of 

8 venture capital is in Silicon Valley and Boston with some 8 people have been mentioning extending the definition of 

9 growth now happening in New York, certainly in Southern 9 accredited investor to have some sort of concept of 

10 California, and then little pockets here and there 10 sophistication. What about extending the definition of 

11 throughout the rest of the country. So I think what 11 accredited investor to basically take account for certain 

12 we're finding is that in a lot of parts of the country, 12 types of transactions? 

13 companies that need those next rounds of capital either 13 For example, where you have a lead investor who 

14 are having to connect up with a really friendly VC who's 14 is sophisticated that is taking up 60 percent of the 

15 willing to travel where they are, which isn't that many, 15 deal, and you have 40 percent, and there are limitations 

16 or they're having to move out to the coast, which 16 on who can invest in that 40 percent. But the fact that 

17 disrupts kind of local economic areas. 17 you have that lead investor that's doing the diligence, 

18 Or what we're really finding is angels then are 18 that is making sure it's a good investment basically 

19 working together in groups, and they're syndicating 19 makes the other 40 percent deemed accredited even though 

20 between groups. So you're now seeing maybe 75 percent of 20 they may not be accredited. There have been certain -­

21 angel group deals are syndicated between three, four, 21 in the history of the creation or the -- looking at the 

22 five angel groups, family offices, and individuals so 22 definition of accredited investor, sometimes those types 

23 they can come up with the capital that the entrepreneurs 23 of things have been looked at and rejected. 

24 need. And so the economic development communities are 24 MS. HUDSON: Yeah, I don't know if I'm familiar 

25 trying to make sure that they have enough angel in those 25 with that specific one. I think that certainly happens 

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Page 114 Page 116 

1 in a lot of deals where everybody is accredited by 1 my group that probably make somewhere around $250,000 a 

2 current definitions, but you do have a leader that's 2 year. If it was raised to $450,000 a year, I would -- I 

3 there. I guess that sounds more complicated, and again 3 could lose those members, and we think it's about 30 

4 trying just to figure out how you would verify and really 4 percent of our membership. Doctors, physicians in our 

5 make that work practically -- it just seems a little bit 5 region, where in New York City they would make 450,000 or 

6 more difficult in the market. But I think in some ways 6 500,000, they make 300,000 in Pittsburgh. So what's 

7 it describes how a lot of angel deals happen right now. 7 representative of Pittsburgh is also representative of 

8 MR. HEMPHILL: And what about, for example, 8 Louisville, Kentucky and Oklahoma and some of the other 

9 friends and family rounds which most people start their 9 middle -­

10 business by using their Rolodex or whatever, their 10 MS. HUDSON: Kansas City. 

11 LinkedIn. So it's people that they know. So having some 11 MS. MOTT: Kansas City. Same thing with net 

12 sort of preestablished relationship even though those 12 worth. So I can just reinforce that point. The other 

13 people may not meet the dollar limitations, be it income 13 thing I think Marianne, one of the things that 2007 study 

14 or net assets. Are you in favor of that type of 14 that Rob Wiltbank did is the return on investment with 

15 accreditation for those types of offerings? 15 the higher -- with the greater amount of due diligence 

16 MS. HUDSON: Well, I mean I'm in favor of 16 that was done. And that's one of the things that angel 

17 making those deals happen some way whether they're 17 -- angel groups, if you ask me today, act a lot like 

18 accredited or not. I mean I think angels want to make 18 small VCs. We use the National Venture Capital 

19 sure that those startups can get backing from friends and 19 Association's due diligence checklist. We use their term 

20 family first. If they can't sell them, why should we 20 sheets. 

21 invest, right? But whether they're accredited or not, I 21 75 percent of our deals were syndicated last 

22 don't know. Right now they're not, and we figure out 22 year, and it's all because we were able to use the same 

23 ways to make sure that the deals can go forward. And so 23 term sheet. And it looks like a Series A term sheet. 

24 a lot of those investments may or may not be equity 24 And so this ability, this sophistication that has been 

25 investments. 25 brought by the industry coming together under a 

Page 115 Page 117 

1 MR. GRAHAM: Sonia. 1 professional organization as well tends to decrease our 

2 MS. LUNA: I really appreciate the PowerPoint. 2 losses because of the amount of due diligence that we do. 

3 It was really comprehensive, and I want to compliment you 3 The other thing I would like to point out is 

4 on the great job you did. The data point that struck me 4 areas like Pittsburgh do not have a great deal of VCs. I 

5 was that 20 percent of folks that are currently 5 mean I started a fund last year. It's a small $30 

6 accredited investors would be eliminated if we were to 6 million fund to be a follow-on, to be a Series B round, 

7 adjust the definition to inflationary rates offered. 7 because there is a dearth of VCs in our region, and we do 

8 MS. HUDSON: Right. 8 see VCs come in and pluck them out and take them out of 

9 MS. LUNA: Okay. But they would be back in the 9 the region. I mean as angel investors we might -- that 

10 pool if we extended the definition, correct, with 10 doesn't hurt us so much, but it does hurt the local 

11 education, experience, investment experience? Is that 11 economy. 

12 correct? 12 So one of our deals I was mentioning earlier to 

13 MS. HUDSON: If that's -­ 13 Charles is a company called ALung raised $65 million. 

14 MS. LUNA: In other words it would balance. 14 It's a medical device, by the way, that got compassionate 

15 MS. HUDSON: Yeah, if that was a choice, yeah, 15 use approval by the FDA and saved the life recently of a 

16 it could work. 16 transplant patient at the University of Pittsburgh, kept 

17 MR. GRAHAM: Catherine. 17 him alive for 22 years because he could not be intubated. 

18 MS. MOTT: I'm going to maybe make some 18 And 60 million of that 65 million came from angel 

19 comments because I'm a member of the Angel Capital 19 investors. We have stayed with that company as it 

20 Association, and I'm a former chairman of the board of 20 continues to get its approval and continue to make a 

21 the Angel Capital Association. So let me talk about, if 21 difference in the marketplace, but that's because we 

22 I could briefly, about the 32 percent that Marianne 22 don't have 35 VCs in our backyard, and we know this 

23 referred to as the middle of the country, the flyover, 23 company, we follow it, it's a spin-out from the 

24 the 32 percent that would be eliminated. 24 University of Pittsburgh, and it's received a lot of NIH 

25 In Pittsburgh, I have doctors and attorneys in 25 money. Thank you. 

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Page 118 Page 120 

1 And SBA, SBIR money, so this whole idea of the 1 and Keith as well. You had indicated on one of your 

2 impact that I guess I'm trying to make here is that the 2 slides that you were opposed to the elimination of 

3 impact on our community, our local economy is very 3 retirement assets for accredited investor because you 

4 important to Pittsburgh, and changing the accreditation 4 thought it was important for someone to have the ability 

5 standards would impact my region more so than it would 5 to invest with retirement. That's not my understanding 

6 impact New York or LA or San Francisco. Thank you. 6 of what the potential proposal is. 

7 MR. GRAHAM: Thank you. 7 It doesn't mean you can't invest in your -- it 

8 Tim. 8 just means you can't use it to see if you're clarified as 

9 MR. WALSH: Which Tim? 9 an accredited investor, correct? So you could still -­

10 MR. REESE: Walsh. Thank you. I have some 10 you could -- if you had $5 million and you had $2 million 

11 questions. Obviously I'm familiar with your organization 11 in retirement assets, you could still invest -- or the 

12 and everything, but I'm sitting here to kind of -- we're 12 other way around. You could still invest from your 

13 going to get a -- we'll have a chance to opine on this, 13 retirement as long as you're under the -- over the cap, 

14 so I don't need to sell you on it. But do you have any 14 correct? 

15 idea of what the impact is to minority startups if the 15 MR. GOMEZ: That's right, Tim. What we've 

16 dollar threshold was increased? And I will make the 16 heard from commentaries is the idea that they would not 

17 caveat because I do know that they are less prone to have 17 count towards the determination of accredited investor -­

18 friends and family money to get their businesses off the 18 MR. WALSH: Right, but you can still invest 

19 ground and they tend to turn to SBIR-type funding. So 19 from that. 

20 can you talk to anything about that? 20 MS. HUDSON: You could still invest from it, 

21 MS. HUDSON: Tim, you might probably have a 21 but I guess the other point really is that would wipe out 

22 better idea of that than I do, because I think -- there's 22 a lot of potential investors. It certainly would wipe me 

23 not good statistics right now on minority entrepreneurs 23 out as an investor. 

24 receiving capital, but I believe it is less than 5 24 MR. WALSH: I'm not disagreeing with you, I 

25 percent of angel capital is going to that right now. And 25 just want to make sure I'm clarifying. And the second 

Page 119 Page 121 

1 we're really trying to work to get more minorities 1 part is the inflation adjustment -- I still -- I'm still 

2 involved as angel investors, as smart ones so that we can 2 trying to find out why in 1982 it was a million dollars. 

3 build that pool. So -- but I would imagine if they're 3 It makes me think of the Austin Powers and the Dr. Evil 

4 not getting it from friends and family, then angels would 4 with the -- (laughter) -- where that number came from, so 

5 really be the top amount that they're getting, but the 5 I'm not sure why we're using that as the focus. And then 

6 number needs to grow. 6 the other concept of be it 4 and a half million dollars 

7 MR. REESE: Thank you, and I have a follow-up 7 today seems very penurious. It would actually take a lot 

8 question. And you talked about portfolio theory to a 8 of investors out. But hypothetically if you took those 

9 small degree. Can you inform us on what is the average 9 numbers to 200,000, 300,000, a million dollars, and you 

10 portfolio balance you should have? I don't mean by 10 used next year as your inflation adjustment, would you be 

11 sector, but in terms of investments in order to start 11 opposed to that? I mean the numbers are the same, and 

12 seeing some returns, do you have an idea of how large a 12 then it goes up 2 percent or 1.5 going forward. It seems 

13 portfolio? 13 to me that might be a nice compromise. 

14 MS. HUDSON: Everybody's got a different 14 MS. HUDSON: It would be -- I guess you could 

15 theory. I think we generally recommend that an investor 15 talk about -- I mean we're coming from the same place 

16 has at least ten investments over eight to ten years and 16 that you are, was 1982 or 3, did they get the numbers 

17 that that probably should get them to the chance for a 17 right. 

18 decent return. I think there's some others who would say 18 MR. WALSH: Well, it was a long time ago, 

19 it's a larger number, but for me I think it's ten, and I 19 right. 

20 think that fits with the data and the research that we 20 MS. HUDSON: When we were involved in the 

21 have. 21 Dodd-Frank discussions four years ago, one of our points 

22 MR. REESE: Thank you. 22 was how do we know that that was the right number. Maybe 

23 MR. GRAHAM: Mr. Walsh. 23 they were just starting to get to be the right number. 

24 MR. WALSH: Thank you, Steve. First question 24 MR. GRAHAM: D.J. 

25 is for Marianne, but also for possibly Julie, Sebastian, 25 MR. PAUL: I just want to -- I had one point 

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Page 122 Page 124 

1 kind of already though we've hit it already to some 1 because I've taken the 7 and 63 many years ago. So -­

2 extent, which is your membership -- correct me if I'm 2 but if it was that kind of -- if it was an easy -- again, 

3 wrong -- is by definition sophisticated. They understand 3 the devil's in the details -- would be the important 

4 the investment set they're in. If there were, therefore, 4 thing. 

5 and just leaving aside the financial test, some sort of 5 MS. HUDSON: Then yeah, I think you're on -­

6 written test, some sort of test to demonstrate that they 6 keeping that balance of ease and the impact it's going to 

7 are as smart and sophisticated as they must be in order 7 have on the market with the sophistication is clearly 

8 to participate in your organization, that would mitigate 8 something you'll be looking at and something you guys are 

9 all of this. It would then be 100 percent of your 9 spending a lot of time on, so it's important. 

10 membership if we could come up with some sort of test for 10 MR. GRAHAM: Keith, did -­

11 that. 11 MR. HIGGINS: Yeah. One question I had, 

12 MS. HUDSON: Maybe. Yeah, I think that that 12 Marianne, was does the Angel Capital Association have a 

13 takes away some of the simplicity and some of their 13 view on the percentage limitation -- applying a 

14 already existing things. I guess you could talk about 14 percentage limitation to one's ability to invest in a 

15 tests or exams or whatever, but I think you're -- just 15 particular investment. 

16 your past experience and just being able to validate that 16 MS. HUDSON: I think our view relates back to 

17 is simpler and keeps the pool larger. 17 that verification thing. Well, it's two things. It's 

18 MR. PAUL: I mean there's precedent for it, 18 one that does -- it doesn't compare to other kinds of 

19 it's just I wanted to note that at some level we all -­ 19 investment. It feels a little bit like a loss of freedom 

20 any of us have a brokerage account, you can pretty much, 20 or something like that, but it's really about, okay, if 

21 once you set it up, invest in anything except options. 21 you do that, how does the issuer or whoever verify -­

22 Options then we have to kind of opt into answering some 22 what are the other things it requires. So it makes it 

23 questions which ask some of the questions that you're 23 just less practical, more complicated for everyone, which 

24 talking about. But I'm talking about something like that 24 could have an impact on the capital pool. 

25 perhaps in a bridge version of the Series 82 or something 25 MR. GRAHAM: Anything else from your end, guys? 

Page 123 Page 125 

1 that actually is specific to this -­ 1 Okay. Catherine. 

2 MS. HUDSON: Yeah, I guess the devil's in the 2 MS. MOTT: I was busy talking to D.J., so I 

3 details and how difficult is it and all those kinds of 3 think, Keith, your question about verification, the -­

4 things. 4 one of the things that individual -- was the question 

5 MR. PAUL: Thank you. 5 about -­

6 MR. GRAHAM: Anyone else? Yes, Catherine. 6 MS. HUDSON: Making an investment -­

7 MS. MOTT: I'd venture to say, D.J., that the 7 MS. MOTT: Never mind. Maybe I'll just go 

8 members -- 65 members of Bluetree Allied Angels, if they 8 ahead and finish my comment. So since I brought it up, 

9 had to take a test, they would say I don't need to do 9 the verification issue amongst angel investors has been 

10 this. So I mean it's like, wait a minute, I've been 10 -- it makes them very, very nervous about handing over 

11 doing this for some time. If I had to take a test to 11 their tax returns and their private, personal information 

12 continue doing this, it's like why bother because this is 12 to entrepreneurs, and how do they know it's going to be 

13 only 10 percent of my total investment assets anyways. 13 guarded and protected and what -- and so. That's what -­

14 I'm doing this trying to enhance my opportunity to create 14 the thought I was thinking about. 

15 more wealth for myself. So I don't know. 15 MR. GRAHAM: Okay. 

16 MR. PAUL: Well, also I know that your 16 MS. MOTT: Sorry I missed your -­

17 membership also -- it has pushed back on having to -- and 17 MR. GRAHAM: Javier. 

18 perhaps appropriately or not -- for 506(c), actually 18 MR. SAADE: Hi, Marianne. Good presentation. 

19 verify what their income or their net worth is. This 19 Nice to see you. Not a question, just some comments as 

20 would mitigate that as well. So maybe the lack of 20 an observer. We are focused on the investor discussion 

21 intrusion into their financial matters, maybe they'd be 21 because this is the SEC, and we're talking about 

22 willing to take a 20 or 30 question multiple choice test, 22 accredited investors. But at the end of the day, just 

23 which I'm sure it happened to be a very long time ago 23 remember the economic development side of this, and my 

24 since the last time they took -­ 24 point is somebody brought up racial minority gaps, 

25 MS. MOTT: If it was that kind of a test or -­ 25 women-owned minority gaps, they're getting more than 50 

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Page 126 Page 128 

1 percent of the degrees, way more in the STEM field. 1 time and actually in some of the materials that we all 

2 They're not raising the capital through any avenue. 2 got, one of the things I looked at was the actual 

3 You can look at gaps, geographic. Somebody was 3 exclusion from the House. 

4 talking about venture capital concentration. Four states 4 And I remember when that was being proposed and 

5 manage 80 percent of it. And those same four states get 5 drafted and how many different ways you could say that. 

6 80 percent of it. So there is some significant needs, 6 And the explanation that the SEC has in plain English in 

7 and one of the reasons I think we're having the 7 about five lines makes it very clear about how that's 

8 discussion to figure out the solution. So I don't want 8 treated as an asset, how liability is treated. So I 

9 us to -- this is just my humble comment. I don't want us 9 think you can get there. One of the things that the 

10 to lose sight of the fact that what we're trying to do 10 gentleman from the AARP talked about is all the changes 

11 here is, yes, maybe expand, maybe contract, maybe look at 11 in the marketplace, and those certainly provide the 

12 the investor pool differently, but really it's about 12 background. 

13 getting more money to where it's needed, because it's not 13 On the other hand, the ability of plain English 

14 going, because the assets have been -- 2008 was something 14 information that people can get today leaving aside 

15 we don't want to repeat. 15 whether Wikipedia tells it truthfully or not -­

16 That consolidation that has happened in 16 truthiness as well -- (laughter) -- truthfulness, there's 

17 banking, five control half of the assets. The other 15 17 a lot more information that the average person can get, 

18 control another 40 percent. So 20 banks out of 7,000, 18 and a lot of it is more convenient and more useful than 

19 right? So they're not lending to small businesses. It's 19 the footnotes or the financial statements of a public 

20 a very tough situation. Similar things have happened in 20 company that are nearly impossible to read, for me 

21 the alternate investment space. So I just don't want us 21 anyway. 

22 to lose sight, and that's my comment of what ultimately 22 MS. HUDSON: Great stuff. 

23 this is about, which is in a prudent fashion with all the 23 MR. GRAHAM: Okay. So with that, we will 

24 bells and whistles and the controls you need to make sure 24 conclude. Thank you, Marianne. 

25 that as many constituents as you can make happy you make 25 MS. HUDSON: Thank you for having me. Thanks. 

Page 127 Page 129 

1 happy is that the capital is not flowing to the small 1 MR. GRAHAM: That's all very helpful. What 

2 businesses, and that's just a quick observation from this 2 we're going to do now is we're going to break for lunch. 

3 discussion. 3 We will break until 2 o'clock. In about five minutes the 

4 MR. GRAHAM: Okay. Well, thank you for that, 4 members of the staff will take the committee, the 

5 Javier. And with-- oh, we have a couple of minutes if 5 committee only, upstairs for lunch and some 

6 there's more -- anyone has another question. Okay, with 6 administrative matters. So with that, we're adjourned. 

7 that, then we're going to break. Thank you -­ 7 (Whereupon, at 12:29 p.m., a luncheon recess 

8 MR. YADLEY: Wait -­ 8 was taken.) 

9 MR. GRAHAM: What -- oh, Greg? 9 A F T E R N O O N S E S S I O N 

10 MR. YADLEY: I was just going to say on the 10 MR. GRAHAM: Can I ask people to take their 

11 percentage limitation, Keith, one of the comments, 11 seats? Let's get restarted. As we were saying at lunch, 

12 Marianne, that you made that as quite helpful was in 12 the primary focus of this committee has to do with the 

13 response to how many investments. So the percentage 13 capital formation and investor protection, and that, of 

14 limitation, if you don't win on the first one, you may be 14 course, leads us to 506 offerings and the definition of 

15 out of the box permanently or for a long time, so I think 15 accredited investor. So we want to just kind of kick 

16 that that is one that would be very hard to sort of 16 things off for this afternoon, and then get everyone's 

17 regulate, okay, well you can only have this percent, and 17 point of view. It's -- without really expressing a view 

18 so if you lose one, so you get one more chance. 18 or just kind of making some observations. I just -­

19 You get three balls for a dollar, but -­ 19 sometimes I wonder if there's a problem with the current 

20 (laughter) -- but another three for 50 cents. So I -­ 20 definition. 

21 again, the devil is in the details, and the practical 21 I think we heard from a number of people 

22 effect, as Javier said, is that we're just reducing the 22 mention is the whole concept of thresholds the 

23 pool of money. The education part that shows great 23 appropriate one. Is there anything wrong with the 1982 

24 promise, and of course that's sort of baked into the 24 numbers? Is there anything right with the 1982 numbers? 

25 crowd funding legislation and the SEC spends a lot of 25 Was anything write in 1982 about the 1982 numbers? So 

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Page 130 Page 132 

1 it's -- and what does that have to do with access to 1 But it doesn't really matter. That's where 

2 information in any event, whether it's -- whether you've 2 we're starting today, and I agree with your observations, 

3 got $200,000 of income or 300,000 or 750? Does that 3 Steve, that there have not been pervasive abuses in this 

4 really solve the problem that we're attempting to solve 4 area. And I think it's worthwhile to talk about. In 

5 for? I'm not sure if there is an answer. I think we 5 part, I think it's because in a private placement the way 

6 have a riddle before us. 6 we think of them, there is a relationship between the 

7 There are lots of thoughts, lots of ideas, but 7 issuer and the early investors, particularly in the 

8 again, I also come back to the question I think we should 8 friends and family round, and there is trust, and there 

9 ask ourselves, and that is: To what extent is there 9 is the ability to get information, which, again, where 

10 actually a problem? And we hear about fraud, and we're 10 the whole exempt offering, who needs to be protected 

11 all interested in preventing fraud. Nobody is in favor 11 started. There's a reason for people to trust one 

12 of not preventing fraud, but there's lots of -- again, 12 another. 

13 there's lots of information that is being floated around, 13 The gentleman from AARP this morning said a lot 

14 and I still wonder to what extent is fraud actually 14 of abuse happens in the friends and family situations. 

15 implicated in the context of private placements to 15 Well, that is true, I'm sure, but I don't think that the 

16 friends and family. 16 Securities and Exchange Commission can necessarily 

17 It's too easy to kind of paint some of these 17 regulate how families interact. So I think the numbers 

18 pictures with a broad brush. And we can talk about 18 are what they are. It was very persuasive to me to see 

19 raising the thresholds, and if we talk about raising the 19 the data from ACA that would show the steep decline in 

20 thresholds, how much does the absolute pool of accredited 20 the capital pool if we added the inflation adjustment. 

21 investors decrease? And how much does the actual -- or 21 So I don't think that's a good idea. I think we ought to 

22 how much does the absolute pool -- and then how much is 22 keep the numbers where they are. The idea of excluding 

23 the actual pool? I don't know. I'm not sure who does 23 certain assets has some appeal. 

24 know, but I think one thing that we can quantify is how 24 There was a significant reduction in the 

25 much investment is made in this context, and I think we 25 investor pool when the primary residence was taken out. 

Page 131 Page 133 

1 can kind of get a pretty good sense, too, of how much job 1 But when you get into the area of investment assets, that 

2 creation results from the investments that are being 2 becomes problematic because at some point at age 65 or 

3 made. 3 whatever, almost all of your assets are retirement assets 

4 And so again, these are observations. We can 4 because that's what you have to look forward to. 

5 -- we're about to have a conversation about it, but I do 5 Presumably at that point you've paid off your mortgage 

6 sometimes worry about when you're -- not to say that this 6 and you've sent your kids to college and your net worth 

7 is where we are, but if you're in a situation where you 7 is your net worth. I've already stated today that I 

8 have a solution and you're kind of looking for a problem, 8 think some of the percentage limitations would produce 

9 you've got to be careful about unintended consequences 9 other issues. 

10 and putting ourselves in a position where we run the risk 10 The idea of adding to the definition the 

11 of doing significant harm to an ecosystem which is 11 sophistication qualifications, in a way I mean that's 

12 clearly important to the economy and in many ways seems 12 already supposed to be there. It's certainly there in 

13 to be working. That's -- these are just some of the 13 Reg D and all of the rules, and it's there in the case 

14 things that are going into my mind, and I'd like to open 14 law if you're trying to do a private placement under 

15 up the floor for comment. Who wants to go first? 15 Section 4(a)(2). I think guidance as to what might be 

16 MR. YADLEY: Greg Yadley. I'll go first. I 16 under the facts and circumstances of a particular 

17 think you've teed up the issues pretty well. It is a 17 offering, credentials that would indicate sophistication 

18 perplexing issue because if you start from a posture of 18 would be good. But I think for the SEC to be 

19 wanting to ensure investor protection, you would end up 19 prescriptive would not be good. 

20 one place, and if you want to start with promoting 20 I think the Commission and some of its recent 

21 capital formation, you'll end up in another place. I 21 rules, including in the verification area for 506(c) 

22 think the place we should start is where we are today. S 22 wisely tried not to be prescriptive. In response to 

23 it's interesting to consider whether a million dollars 23 public comments, the SEC gave more guidance than it 

24 and $200,000 and $300,000 were the correct metrics in 24 originally intended to, and I think the Commission was 

25 1982. 25 proven right because a lot of people aren't using it 

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Page 134 Page 136 

1 because they still believe that if they're not within the 1 MR. GRAHAM: And just to interrupt -- sorry, 

2 safe harbor, they're on their own despite what members of 2 but if that happens so that we can eliminate 100 percent 

3 the Commission and the staff have tried to encourage. 3 of the fraud, then I'm all for it. I don't think that's 

4 But it would certainly be good guidance. 4 the case. 

5 A test -- if it's a basic test, that's fine, 5 MS. MOTT: It's not going to eliminate 100 

6 but again, as I commented earlier, it is -- while 6 percent of the fraud. And bad actors are going to exist 

7 information is good, I jokingly said I can't understand 7 and find ways. And one of the things I was thinking 

8 some of the footnotes and some of the more complex 8 about when I heard the gentleman from AARP, I was 

9 transactions, I'm not ashamed to admit that. I do read, 9 thinking about my parents. And they're not accredited 

10 and I get paper copies of 10Ks, and I own stock in Bank 10 investors, but I know they've been subject to scams. Now 

11 of America and other large financial institutions, and 11 fortunately they usually call their children and ask if 

12 those are pretty heady things, and it's very difficult to 12 -- but not everybody does, and so -- and the fraud is 

13 understand. 13 going to be committed even with those who are not 

14 I've also personally invested in a range of 14 accredited investors. 

15 securities, including biotech and other complex matters 15 I will say I have concerns about using or 

16 where I certainly believe I am intelligent enough to read 16 eliminating retirement funds. Many accredited investors, 

17 about the business, and just because I am qualified to 17 that's part of the picture, that's part of the formula of 

18 invest in a real estate deal doesn't mean I'm qualified 18 your net worth. It's the liquid stuff that you have, and 

19 to invest in a biotech deal. But risk factors do fall 19 quite honestly, I don't know about you, but I try to 

20 into categories, and I think the education idea that I 20 shelter as much of it as I can from tax income, so a lot 

21 think everybody is in favor of that talks about, as Tim 21 of it will be shifted that way. I have concerns about 

22 Walsh said, liquidity and ultimate rates of return, 22 excluding retirement funds from the definition or from 

23 things like that, the ability to participate, I think 23 investing. One of the things we do at Bluetree Allied 

24 certainly it would be useful to ensure that investors are 24 Angels as we put our investors through an orientation 

25 provided with that information. But to assume that you 25 program, and we talk about -- we basically say all of the 

Page 135 Page 137 

1 could come up with a test that would allow you to invest 1 principles that you apply to your public stock portfolio 

2 in derivatives and mining companies and everything else 2 you should apply to this asset class as well. 

3 would probably be a fool's errand. 3 So that means diversity, that means limiting 

4 MR. GRAHAM: Thank you, Greg. 4 the amount of investments that are qualified as 

5 Catherine. 5 alternative investments as 5 to 10 percent of your total 

6 MS. MOTT: One of the things we -- you 6 investments. So there's already a sophistication process 

7 mentioned it already, Steve, and about the ecosystem. So 7 with a good segment of the marketplace that occurs. So I 

8 think about in -- sort of in a granular way if we can 8 would conjecture also -- one other point I would 

9 think about how the little fish are eaten by the big fish 9 conjecture that I know that the gentleman from AARP is -­

10 and are eaten by the bigger fish and then are eaten by 10 deals with a lot of unsophisticated people. But I would 

11 the next whatever. If there is a decrease in the amount 11 wager to say that over the past 30 years because of the 

12 of angel capital in the ecosystem, there will be a 12 internet and Khan Academy and everything else, a lot more 

13 decrease in the amount of companies that can be invested 13 older people are a lot more sophisticated than they would 

14 in be venture companies. There will be a decrease in M&A 14 have been 30 years ago without the internet, without 

15 activity, and there will be a decrease in IPO activity. 15 access to so much information. 

16 Angels take the early risk. 16 So I think there's a lot of people who are 

17 They're first in with a decrease in NIH 17 retired. I think of people in my church that are very 

18 dollars. We're even investing in a lot of life science 18 retired, and they're constantly asking me about things 

19 companies that require funding for R&D, because the SBIRs 19 that they're reading about investment opportunities 

20 aren't enough to do it. And the NIH money is not enough 20 because they're reading. They're very informed. So 

21 to do it. So whatever we do here and we -- and if the 21 those are my thoughts as I think about this. 

22 accreditation standards are risen and are, I'm sorry, 22 MR. GRAHAM: Thank you. 

23 hiked up and it decreases the pool of angel investors, 23 I'm going to go to Sonia. 

24 then just understand there will be an impact on 24 MS. LUNA: So I wanted -- I don't know if a 

25 everything else down the way, down the path. 25 million dollars is the right number. I don't know if it 

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Page 138 Page 140 

1 should have started at that number. I'm not opposed to 1 then subsequent to that, I would like to broaden it so 

2 changing the number as long as we're doing a balancing 2 that we actually have a definition of sophistication that 

3 act by adding something into the mix given the data that 3 captures the guidance that we have from the Supreme 

4 we've been shown. So adding to the definition of some 4 Court, which I don't feel like we have exhaustively now. 

5 sophistication certification, investment experience, et 5 And I'll leave it there for now. 

6 cetera, because then you kind of have a yin and a yang 6 MR. GRAHAM: Thanks. 

7 going on, so I am not seeing this problem one way. I'm 7 MS. HANKS: I just wanted to raise something on 

8 trying to see a comprehensive solution. 8 the exclusion of assets thing that a couple of earlier 

9 Now from a regulator standpoint, I don't know 9 speakers have raised, those being a couple of big 

10 what that would mean day in and day out. I don't know 10 misconceptions about retirement assets raised today. 

11 the cost of actually implementing our definition, so I 11 Number one, that retirement assets are a separate asset 

12 think when we get to writing or making a recommendation, 12 class, and number two, that they're somehow stable, 

13 we should probably also take that into account, what it 13 safer, a nest egg, those words we used. Firstly, they're 

14 means to a regulator to actually follow through on this. 14 not a separate asset class; they are a tax treatment of 

15 MR. GRAHAM: Okay. Thanks. 15 specific assets. 

16 D.J. 16 And when you go back -- and thank you very much 

17 MR. PAUL: Yeah, I mean I would echo some of 17 for finding the earlier releases from the 1980s -- you've 

18 the sentiments that have already been expressed. I would 18 got the SEC specifically saying with respect to 

19 just start from using a different analogy, maybe the 19 determination of income we are not going to take -- we're 

20 Hippocratic Oath, which is, first, do no harm. This is a 20 not going to use, for example adjusted gross income in 

21 system that is working. It's a trillion dollar market. 21 determining the income of someone. If someone has 

22 It's often described as the crown jewel. It's very 22 shielded their income such that they're not reaching that 

23 functional, and however clunky the definition was in '82, 23 AGI, we're still going to count it as income. So we're 

24 whatever, it's working now, and we would be -- I think it 24 not -- we are going to disregard any tax treatment of any 

25 would be a poor choice to mess about with a system that 25 of these metrics. 

Page 139 Page 141 

1 is functional and that is responsible for such a 1 And the second point is that these aren't safe 

2 significant portion of capital formation in this country. 2 assets. Things you can put in an IRA, you can put race 

3 The metrics speak for themselves in terms of like it 3 horses in an IRA. You can put startup companies. You 

4 compared to the various public markets. So I don't want 4 can put Bitcoin. You can put gold, you can put anything 

5 us to suggest something that is a solution in search of a 5 except collectibles and life insurance proceeds. So 

6 problem that is not there. 6 there's a lot of self-directed IRAs there which have got 

7 However, I do think that there is a problem 7 a lot of thoughtfully designed, well-taxed, provisioned 

8 that needs to be addressed. That's not it. I haven't 8 investments for the future. 

9 seen enough data to suggest fraud, so I don't think that 9 MR. GRAHAM: Thank you, Sara. 

10 that's it. I do think that there's a problem, and the 10 Charles. 

11 problem is that the definition has strayed from what 11 MR. BALTIC: Charles Baltic. I'm very mindful 

12 guidance we do have both statutorily and in the 12 of the need for a balanced perspective and consideration 

13 congressional record and specifically from the Supreme 13 of the joint or dual interests of investor protection and 

14 Court and the Ralston Purina decision, which is a 14 access to capital that, of course, balancing and 

15 sophisticated investor is one who can fend for 15 consideration doesn't dictate an outcome. And I'm also 

16 themselves. 16 mindful of the ongoing need for maintaining market 

17 And the current definition that we have is a 17 integrity, and we certainly don't want to taint the well 

18 definition, a way of arriving at that, but it is clearly 18 of private capital that has created a lot of benefits 

19 not exhaustive. That's rather plain language for the 19 that we've talked about today and we've seen some very 

20 Supreme Court. And if the Supreme Court had meant that 20 compelling data in that regard. But I would want any 

21 it meant someone who could take the financial hit, which 21 solution or change to be well grounded in evidence. 

22 is effectively what the definition is now, then I suspect 22 To my mind, the accredited investor definition 

23 that the Supreme Court would have said that. So I would 23 based on net worth and income thresholds has been an 

24 like to -- I would like to do no harm, leave the system 24 effective tool to balance investor protection and access 

25 as it is. That would be my first recommendation. And 25 to capital. It is a proxy. We've all acknowledged that, 

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Page 142 Page 144 

1 and so it is not perfect. But I'm not convinced that the 1 MR. GRAHAM: Thank you, Richard. 

2 measures that have been proposed or discussed today would 2 John. 

3 not have an uncertain and deleterious impact on capital 3 MR. BORER: So I think D.J.'s point about do no 

4 formation. I'm also -- I would also note that we had a 4 harm is a good one and having been in the industry -- the 

5 recent change with respect to the Dodd-Frank exclusion of 5 investment side of it at least for a long time or the 

6 principal residence, which changed the number of 6 brokerage side of it for a long time. When things 

7 households covered, I think from 9.4 million to 7.2 7 change, there's always uncertainty. And the caution that 

8 million. 8 may be put into the system because of the problem of 

9 And that is a pretty dramatic increase or 9 identifying the right or wrong way to do something and 

10 decrease in the pool of capital based on households. And 10 where the safe harbors are could be problematic and 

11 we also heard earlier today that for instance something 11 disrupt the flow of capital until things settle out 

12 like inflation indexing from 82 to current would have an 12 irrespective what the intent of the intent of the rule 

13 impact of going from 12.4 million households to 4.4 13 is. 

14 million households, which would be a very dramatic 14 Now with respect to what the -- this provision 

15 impact. And so I think the current posture is one that 15 -- fending for oneself is very subjective. I kind of 

16 has led to a lot of benefits in the investment community. 16 like it. But in our business, we not only have to follow 

17 I'm not convinced that there's a clear alternative at 17 all these rules, but we also have to evaluate a thing 

18 this point. Some alternative measures that have been 18 called suitability, which ties into this. Brokers have 

19 discussed, including, for instance, a liquidity provision 19 this responsibility. It's irrespective the wealth of 

20 don't have the sort of permanence that net worth and 20 this investor, is this investment suitable for them? And 

21 income have. Those are less variable over time, I 21 that is the responsibility that's put on the broker to do 

22 believe, than liquidity, which can change very 22 these things. And it's a highly subjective thing. And 

23 dramatically even for sophisticated people. And so I 23 because we're to some degree counselors for the 

24 think that right now we've been tasked with reviewing 24 investors, more so on the individual side than the 

25 this, and that is an ongoing obligation. But my view is 25 institutional investor side which are deemed to be very 

Page 143 Page 145 

1 that I haven't seen compelling evidence for consensus 1 sophisticated QIB definition. It's -- we take that into 

2 around a particular change being proposed. 2 account, and if somebody tells me that because a company 

3 MR. GRAHAM: Richard. 3 is a 34 Act registrant on NASDAQ that that's a safe 

4 MR. LEZA: My feeling that -- after seeing all 4 investment, so the most risky biotech in the world that's 

5 that data and understanding the venture capital business 5 on the NASDAQ, anybody can go buy on their E*Trade 

6 inside of -- we've got to keep the system the way it is. 6 account or Charles Schwab without any further information 

7 It's been working. We have people now that are much more 7 or advice, and they've never touched that prospectus. 

8 educated. They understand risk factors much more than 8 And yet that same individual can't buy a newly 

9 they did in 1982. And I don't see that adding any other 9 issued, unregistered bond issued by GE. And I think 

10 things to it will protect investors. I think that 10 those two point very clearly as to the distinction. And 

11 everybody is -- fends for himself, and most of the people 11 what are we trying to get into? Now the issue of slicing 

12 that are accredited investors now seem to keep things in 12 and dicing, and I listen respectfully to the gentleman 

13 perspective. 13 from AARP, that setting bright-line tests for retirement 

14 And I just don't see somebody with a little bit 14 assets in this world is very, very difficult. 

15 of education and a little bit of having a million dollars 15 Somebody mentioned a few minutes ago -- maybe 

16 in the account, that they would put their retirement into 16 it was Greg -- all of my assets are retirement assets, 

17 risk. They didn't get to that position by making those 17 every nickel I have. It's not my 401(k), my IRA, my -­

18 kind of decisions. I have faith in the -- on the people 18 whatever those things are. It's all for retirement. And 

19 that doe these investments, and I think that they look at 19 in many people's cases, those pieces may be very large or 

20 very closely, and they're getting more and more 20 very small. If I worked my taxes right, 98 percent of 

21 information. And as far as California, this thing has 21 everything I own would be a retirement assets in one of 

22 been working very well, so I don't see whether we should 22 those plans because they would be tax deferred. 

23 add more criteria to it because I'm not sure that you're 23 Sometimes you could have people inherit various of those 

24 going to get the additional protection, and I think it 24 accounts and roll it again in another generation, et 

25 will reduce the capital formation. 25 cetera. And on the other hand you have somebody who has 

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Page 146 Page 148 

1 zero as defined by this economic study that was reported, 1 because it's four years is kind of scary. And investor 

2 so retirement assets, meaning they do not have a 401(k) 2 protection is great. I happen to believe that the free 

3 or an IRA, but might have $100 million. 3 market would allow many of these things to be imposed 

4 And should we take and automatically deduct 4 upon individuals as they're thoughtful. And we're trying 

5 some level of what we feel should be their retirement 5 to protect people against themselves here as opposed to 

6 asset to protect them as well when, in fact, this 6 against the massive fraud that is being perpetrated on 

7 arbitrary housing for tax purposes of these assets hasn't 7 people in private placement offerings in my view. And I 

8 happened? So I think that what I heard from AARP -- and 8 have heard nothing today that tells me that the loss 

9 I know this may sound pejorative -- is that the closer 9 through these private placements is any greater than the 

10 you get to retirement and the older that you are, you 10 combined loss from Enron, MCI, and HealthSouth, which 

11 should have a different standard. And I know they 11 were fully -- and going back to the old days -- equity 

12 wouldn't -- and most people wouldn't say, well, that's 12 funding and Franklin National and all those things, the 

13 not right, because we're not going to pick on old people 13 fully reporting New York Stock Exchange registrants. 

14 because they're old, and they may be more subject to 14 MR. GRAHAM: Thank you, John. 

15 being misled, fraud, they have less sophistication 15 Chris, do you -­

16 because they aren't familiar with the internet as others 16 MS. JACOBS: Yeah, I'd like to follow up with 

17 may be. 17 one example that is I think quite pertinent. We're 

18 And certainly since 1982 and today, the 18 talking about the retirement funds of folks, their age, 

19 availability of information on every part of our society, 19 et cetera. But nobody was there to stop 90 year old dad 

20 including fraudulent people doing bad things who have 20 from being a day trader and losing 50 percent of his net 

21 notorious pasts, it's available all right there in front 21 worth. And I just don't think we can plug that hole. I 

22 of us whether it's on file at EDGAR or not. But I think 22 just -- I think we're attempting here to legislate 

23 if we all the of the sudden say that somebody who's 65 23 financial risk, and I just think it's like morality. 

24 shouldn't be able to do something that a person at 45 can 24 We're never going to be able to go there. So I will 

25 be able to do, because even if they lose all their money, 25 weigh in on where I would come form on today's topic. I 

Page 147 Page 149 

1 the 45 year old might be able to get it back, it gets 1 am not convinced of proof of failure. 

2 very, very hard I think in the individual application to 2 I'm just not convinced that we are on a topic 

3 investors, one versus another. 3 with a proven track record of failure, and so I would say 

4 And another thing with respect to -- I think 4 don't touch it. Just leave it the way it is. In fact, I 

5 this -- I thought this before with respect to the 5 might go the other way and say, oh, but let's let the 

6 residence and certainly with respect to retirement 6 certified financial professionals in because I thought 

7 accounts. You can sell your residence and all of the 7 that argument made great sense. These are folks, are 

8 sudden turn it into an investable asset and you can pull 8 CPAs and are folks that are accredited is let them in in 

9 the money out -- you pay the taxes that are owed, whether 9 the definition, but I wouldn't mess with it. I just -- I 

10 you pay the 10 percent if you're under 59 and a half or 10 don't think it's that broken. 

11 not, you can get that money and take it to the racetrack 11 MR. GRAHAM: Mr. Reese. 

12 tomorrow, and we don't do anything about that. 12 MR. REESE: Thank you. I was sitting here 

13 And if those people can do that, why wouldn't 13 thinking about this, and it's -- the issue itself is 

14 we, if they have those assets and meet these other income 14 really rolled into a larger, more complex issue than the 

15 or asset tests be able to apply the same skills or luck 15 issue of just the definition of the accredited investor, 

16 that allowed them to create those assets in furthering 16 which made me just sort of think through that as we've 

17 either building their retirement nest egg or having fun 17 all noted that Reg D and the idea of raising capital 

18 -- I assume a lot of people become part of angel groups 18 through private placements has been successful, it's been 

19 the way my mother and her bridge club friends had an 19 a successful model, and it's been a success for some of 

20 investment club in the 1960s. And nobody was telling 20 us at this table, and it's been a success for some of the 

21 them what they could or could not do. They were 21 companies we've invested in, and we've seen the results 

22 investing individually, but they did it because it was 22 of what that success has done to their lives and the 

23 also a social and giving back to society and being part 23 lives of their families and for the communities they 

24 of something. 24 support. 

25 So I think changing the rule to change the rule 25 I also would not lose sight that Americans and 

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Page 150 Page 152 

1 America enjoys a certain marketplace that's been unique, 1 equity to the business, small business markets in 

2 which is the ability to lose money on gambling on risky 2 America. Hence I do -- I don't think we should change 

3 propositions. That's what made America America and has 3 the rules around alternative and around an accredited 

4 given us the opportunity to be a leader in so many 4 investor. In fact, I think I support the fact that we 

5 different financial categories because of that and not 5 should increase the pool of investors that would fall as 

6 losing sight that through some other new legislation in 6 an accredited investor, whether through the certification 

7 the foreign countries, they're trying to plug that hole 7 program, whether it be through some other education 

8 using crowd funding and the like. I still think that in 8 initiatives, but we should be looking at a way to bring 

9 the minority communities across America that the need for 9 more capital to the small business market given the 

10 capital is even larger than the pool of dollars that are 10 economic realities of America competing globally with 

11 available today. 11 other faster growing countries. 

12 Some of this issue that I've come to learn and 12 MR. GRAHAM: Thanks, Tim. 

13 been educated on is the IPO market for small businesses 13 Before we get -- well, go ahead, John. 

14 has shrunk tremendously since 1990s. In the 1990s -- and 14 MR. HEMPHILL: Thank you very much. I just 

15 we can factor in the dot coms, but there were about 2,000 15 wanted to add my two cents to this, and the first thing 

16 small companies that IPO'd. In 2012, there were 750, and 16 is that Reg D is an oxymoron. It's a popular regulation. 

17 I think that number is even getting smaller because the 17 People love Reg D. My clients love Reg D. They love the 

18 concentration of capital to go public requires an even 18 fact they can go out and raise capital from people. It's 

19 larger venture, which is why you're hearing about these 19 been popular since I started working on it in 1982 using 

20 outsize IPOs. 20 that regulation. It's been -- and it's worked. It has 

21 So it leaves to the American public what is it 21 worked really, really well. And it's working really, 

22 to do to get a return, because your savings is not going 22 really well right now, so I would just for the issue at 

23 to give you the type of return to support your lifestyle, 23 hand whether we should amend the definition of accredited 

24 and that's where we're driving at this issue is 1 percent 24 investor, I would lend my support to say, no, we should 

25 on your money is not going to give you that return, so 25 not do that, certainly not to make it more stringent. 

Page 151 Page 153 

1 people are looking at alternative investments in the way 1 And I also support the idea that we should expand the 

2 to deal with this. Dodd-Frank has created some other 2 definition of accredited investor. 

3 issues in my opinion that we should be looking at. I 3 For example, one of my partners who does work 

4 think investor education is the biggest issue right now 4 in tribal laws came up to me a month ago and said can a 

5 in America because of these changes. We should be 5 tribe qualify as an accredited investor. We took a look 

6 looking at that. 6 and the answer is even though they have some huge assets 

7 And since 2008, I know that I have seen an 7 like casinos, they don't qualify. There's no place where 

8 unprecedented number of companies and minority companies 8 they qualify in the definition of an accredited investor. 

9 that were looking for equity through the alternative 9 So I think we need to look be it through some sort of 

10 markets to be able to meet their debt covenants. Because 10 public request, of course, some ideas as to how we can 

11 with Dodd Frank, the way banks could lend money actually 11 expand the definition of accredited investor or where 

12 changed, and you had to meet certain thresholds, which 12 there are holes to try and get more money into the 

13 meant you needed more equity. But the only way that they 13 system, because it's a really popular system. It rivals 

14 were going to get this equity is to be able to do to the 14 public offerings, and it's a great way to get money into 

15 angel markets and raise capital. So it also provides 15 newly started companies and private companies. 

16 another source of funding, because what we raise, what's 16 MR. GRAHAM: Thanks, John. 

17 raised in the private equity realm also allows some debt 17 Charles, could I get you to just say a few 

18 to come in to meet the thresholds to run business. 18 words about the demise of the small IPO and the changes 

19 So I think -- and I do think that the larger 19 that kind of led up to that and kind of where we are with 

20 issue we'll deal with at another time, crowd funding is 20 that ecosystem? 

21 supposed to provide if you have a dwindling IPO market, a 21 MR. BALTIC: Sure, Steve. 

22 low savings return because the interest rates and you 22 MR. GRAHAM: Because it could be a cautionary 

23 have a new covenants that have taken away -- to have a 23 tale. 

24 certain amount of debt-to-equity ratio we need to find 24 MR. BALTIC: Yeah, it's definitely been the 

25 new ways, not contract, but find new ways to provide more 25 case, and I think we heard some numbers cited earlier on 

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Page 154 Page 156 

1 the metrics, but that the phenomenon of the small company 1 certainty that certain things that we talked about really 

2 going public and raising a limited amount of capital in 2 would solve a problem that has been well defined, then 

3 the public markets had definitely been impacted over time 3 you just kind of follow where things take you in that 

4 I think for a whole host of reasons that don't strictly 4 regard. But as you mentioned earlier, I'm not sure about 

5 involve some of the issues that we're dealing with here 5 the evidence. 

6 today. But they do relate to the ecosystem of a company 6 Catherine. 

7 or an idea or a technology or a discovery getting from 7 MS. MOTT: One other thing. There was a very 

8 inception to a point where it can go public. 8 powerful slide that Marianne had shown us, and that was 

9 So there's a continuum of capital that ranges 9 the Kauffman study and the SBA business dynamics 

10 from the individual capital, friends and family, angel 10 statistics report that showed that for the past 30 years, 

11 capital, then structured institutional capital starting 11 all net new jobs came from companies five years old or 

12 with venture capital and then crossover public capital 12 less, and if you take that out of the mix, you have net 

13 and then full public institutional capital. But to get 13 job losses over the past 30 years. And so the other 

14 to those later stages for an entity or a company to be 14 component to this is real job creation that we're talking 

15 attractive to the public market, to some extent it has to 15 about. 

16 be meaningfully de-risked. And some of that goes on in 16 And to me, one of my investor said that slide 

17 the private market. Much of that goes on in the private 17 makes sense to me because large companies are about doing 

18 market. 18 more with less people, and small companies are about 

19 Mentioned earlier that from my perspective the 19 doing more with more people, going from five people to 

20 venture capital community, which does a fantastic job of 20 ten people to 50, 100. So the other I mean component 

21 fostering innovation tends to be aggregated in the 21 we're talking about here is beyond the venture and the 

22 financial centers, and so some of the country is at 22 capital formation market. It's just -- it's job 

23 disadvantage. I would also say that a lot of that 23 creation. 

24 venture capital has a time constraint on it, because the 24 MR. GRAHAM: D.J. 

25 life of a fund might be ten years, and so there's a five 25 MR. PAUL: Yeah, here's the other component 

Page 155 Page 157 

1 year investment cycle and then a five-year harvest cycle 1 we're talking about, which dovetails into what was just 

2 whereas a lot of these technologies and innovations take 2 said and a couple other points as well, which is we speak 

3 longer than that to get to the point of potentially going 3 of allowing the democratization of capital and access to 

4 to the public markets. So I think there is a funding gap 4 capital and helping small businesses and SMEs have access 

5 in the earlier stages of development that is to some 5 to capital through the Reg D market, and of course that's 

6 extent addressed by the private capital rules that we've 6 true. But the data is in, and people don't create wealth 

7 talked about and would be disadvantaged if those rules 7 through savings. That's just not really true. And we 

8 were changed in such a way that it limited the amount or 8 have a $1 trillion market that's accessible on a 

9 number of investors that could participate in private 9 practical basis. They're a couple percent of the 

10 capital. 10 population. 

11 So there's a host of things that I think have 11 If we want to do some good here as opposed to 

12 affected the public markets, but one of them is the 12 doing harm, opening that up for the democratization of 

13 ecosystem or the feeder system for getting innovation to 13 wealth creation is an obligation that I think this 

14 a point where the public market is willing to accept that 14 committee might have at least in terms of its 

15 risk, and I do think that that's a very important 15 recommendations. And for those who are concerned quite 

16 consideration in this matter. 16 rightly with investor protections and unsophisticated 

17 MR. GRAHAM: It's -- I mean we've all witnessed 17 investors being taken advantage of, well, then that's 

18 kind of the demise of the small IPO. And we talk about 18 fine. Let us then open up, let us leave in place what is 

19 potential solutions having to do with tick size and other 19 in place, and let us open it up only to those investors 

20 things to try to figure out some kind of way to bring 20 who by dint of their education, by dint of their 

21 that back, and the whole notion that someone mentioned 21 credentials, perhaps by dint of some test if we can agree 

22 earlier about do no harm, that kind of -- to me, it kind 22 on what that would be, but through some bright-line 

23 of reminds me of that scenario, and this is a powerful 23 metric, right, bright-line test, we can establish that 

24 segment of our economy, and do we really want to run the 24 person is sophisticated. 

25 risk of kind of dismantling it. And if there was some 25 That person conforms to the Supreme Court's 

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Page 158 Page 160 

1 guidance on someone who can fend for themselves and at 1 ACA is the million doesn't make sense to me. 

2 least open it up to them, at least open it up for example 2 It didn't make sense in 1982 and with these 

3 to registered representatives who can sell these 3 numbers, sometimes you have to just come up with a 

4 securities. Surely if they can advise their clients to 4 number, but my concern if we don't think about putting 

5 buy them, they ought to be able to buy them for their own 5 some type of inflation going forward -- and I don't mean 

6 accounts. It is nonsensical to think that a young 6 this $2 and a half million or $4 and a half million that 

7 stockbroker who is selling one of these things and then 7 was in one of the slides, at some point whether it's an 

8 is asked by his client, are you buying it for your own 8 advisory body like ourselves or an SEC commissioner or 

9 account, can now say I'm not allowed to as opposed to, 9 Congress is going to draconian put just some -- another 

10 yes, I am or, no, I'm not, which would be more in keeping 10 caveat number in, 2 and a half, 4 and a half million, and 

11 with the whole notion of alignment between advisors. 11 the ramifications then will be very harmful to the 

12 And I used the example of a registered rep, but 12 economy. 

13 certainly an attorney that advises or a CPA or a CFA. So 13 So I think we ought to consider at least 

14 there are categories that I think are pretty broadly -­ 14 putting a CPI adjustment in going forward. So I think 

15 can be pretty broadly agreed upon of individuals who 15 CPI is 1 and a half percent. Next year it would be 

16 because of their education, because of their professional 16 1,015,000. I think if you did that together with the 

17 accreditation, because of their demonstrated 17 combination of CPAs, registered advisors, it's sort of a 

18 sophistication should be included in this pool, and I 18 good compromise, and it certainly wouldn't be draconian 

19 think that that should be something else that this 19 like we've talked about this 2 and a half or 450,000 or 

20 committee is contemplating as a recommendation. 20 2.5 million, which to me just doesn't make sense. 

21 MR. GRAHAM: Thank you. 21 MR. GRAHAM: Good idea. 

22 Tim. 22 Sara. 

23 MR. WALSH: Thank you, Steve. I was originally 23 MS. HANKS: Just a quick point on the inflation 

24 going to go after you, yourself, and Greg just figured 24 adjusted thing. I think it's a good idea if it just bear 

25 we'd go around, and I got beat to the punch, so I figured 25 in mind the fact that a lot of the Reg D offerings are 

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Page 159 

I'd just keep my mouth shut and wait till the end and 

take all the opinions and advice together. And what I'm 

stunned at is there seems to be almost a unanimous 

opinion to -- I think the paraphrase, Mr. Paul, was do no 

harm, and I agree with that 93 percent. To -- a couple 

of the caveats, I think we have to do -- we do have to 

think what Mr. Certner said today about the AARP, because 

in some ways -- some of the things he said were correct 

that here are people being preyed upon, but I don't think 

Reg D is the reason, and I think the SEC has a lot of the 

tools to take care of that, which isn't the mandate of 

this body. 

But I like Christine and Tim Reese's idea and I 

guess some others to expand the pool. I think of some of 

the employees I used to have in New Jersey in their late 

20s, early 30s that wouldn't meet the criteria but were 

-- had the responsibility to invest billions of dollars 

every year of the New Jersey pensioners money into 

private placements. And they were as sophisticated as 

many people I know that make 400, $500,000 a year. But 

their income levels and asset levels, they couldn't 

invest in something like that, and that just doesn't make 

sense going back to the stockbroker analogy. But the one 

-- the 7 percent, which is I think something we should 

think about, and I mentioned earlier with the lady from 

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Page 161 

done by very tiny, little companies with just a couple of 

guys who are going to go looking anywhere on the internet 

for the documentation to put it together. They're going 

to get into trouble. So if you do have something that's 

inflation adjusted, there's going to have to be some kind 

of -- beyond what's already in Reg D so that they don't 

get into trouble just by saying, oh, yeah, I looked it 

up, and I found the number, and the number is just over a 

million, when in fact it's like 1.2 at some point. 

MR. WALSH: Well, I left this -- I mean the IRS 

puts out a number every year. This is the number, and 

it's good for one year. I don't think that's a -­

MS. HANKS: It could be on the SEC's website, 

too. It could be -- you meet the definition as it's 

posted currently on the site. It's a minor thing. 

MR. GRAHAM: Is there -- okay. You have 

something, Tim? 

MR. REESE: Well, it was just commentary. I 

think the commentary is the one thing I think about when 

we talk about allowing individuals in and Paul's sort of 

analogy of am I buying it, you're buying it, I'm just a 

little bit -- we've just got to be a little concerned 

just there in terms of like when you go into a broker, I 

would just want to make sure either from optics or from 

graft that you -- that there's -- we -- there's language 

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Page 162 Page 164 

1 if we did go through a level of having non-accredited, 1 between California and Arkansas is huge. So -- and then 

2 certified bodies participate, and they happen to be 2 if you have $200,000 and you have no debt, your mortgage 

3 buying and selling securities on their own and also 3 is paid, you're buying food and utilities, you may be in 

4 selling to ma and pa that we have to make sure -- because 4 a position to spend $10,000 on an investment and fend for 

5 that's why we have FINRA brokers because it makes sure 5 yourself, survive the loss, whatever. So that's one 

6 that we sort of separate a little bit of what could be 6 note. I'm also, as people from the prior term know, I 

7 church and state. If you hop in a deal because you're in 7 don't really like trying to protect people from 

8 and you're getting some fees on it, we've got to monitor 8 themselves. 

9 that. 9 So thinking about -- (laughter) -- which is 

10 MR. GRAHAM: That's kind of -- it's a good 10 kind of what we're -- when you think about the investor 

11 point, I think. It sounds kind of like devil in the 11 protection, that's kind of what we're trying to do. When 

12 details. I think the conceptual point is if someone with 12 I think about a senior and listening to the guy from AARP 

13 these qualifications can make a recommendation for 13 today, a senior makes a bad, risky investment, and groups 

14 someone else to buy stock, he should be in a position to 14 are created to protect that group of people, whereas a 

15 buy similar securities notwithstanding the fact that it 15 younger person, middle age and down, makes a bad 

16 does meet one of these thresholds tests. 16 investment decision, it's either a bad investment 

17 I haven't heard from Dan. I haven't heard from 17 decision or he was stupid, but you go on. There's nobody 

18 Shannon. 18 out to protect the 40 year olds that are doing things. 

19 MR. CHACE: You haven't heard from me because I 19 So we can solve the AARP's problem by just eliminating 

20 generally agree with all the statements. Just for the 20 anybody who's over 65 can't invest at all. I mean -­

21 same thing, it struck me earlier that there isn't really 21 (laughter) -- that's stupid, right? But wouldn't that do 

22 -- it's not broken as many have said. There's not a 22 it? 

23 dealer problem. I'm not convinced that the fraud amongst 23 MR. YADLEY: Shannon, you're absolutely right. 

24 the elderly correlates or means that there's substantial 24 Nobody told the kids, and we get those student loans, and 

25 fraud in the Reg D market. In fact, it sounds like 25 then they graduate, they don't have jobs, guess what, 

Page 163 Page 165 

1 there's generally not. And also one thing that did 1 they're underwater. 

2 strike me is 10 percent of the households that are -- or 2 MS. GREENE: Yeah, so I'm being facetious, and 

3 10 percent of natural persons measured by households that 3 that's part of the way I make my point, but we can take 

4 are -- couldn't invest in these seems like actually just 4 care of the seniors, but that's not really the solution 

5 a regular guy like an actual reasonable number, it 5 either. So I'm -- I think the line -- the dollar amount 

6 doesn't seem excessive, it doesn't seem -- 1 percent 6 drawn is an arbitrary -- I mean it sounded like a lot of 

7 seems quite small, which is what it was initially. You 7 money in 1982 I guess. Maybe it's not so much now, and 

8 can trust 10 percent of your population to invest in 8 yet it depends on where you live and where you sit on 

9 risky securities. You'd sure hope that that's the case, 9 whether that's a lot of money, not a lot of money, do I 

10 but generally I agree with all the comments, and I would 10 -- if I make that much money, I'm automatically 

11 support as well probably increasing the number of people 11 considered to be able to make investments. 

12 as others have said. 12 But I'm telling you, if I was trying to live in 

13 MS. GREENE: So I'll be the last one, and I'm 13 Manhattan on $200,000, I'm guessing -- never lived there, 

14 the same way. I don't really have any disagreements with 14 but I'm guessing I wouldn't have money to make -- I don't 

15 anything anybody said. I would I guess at a minimum 15 care how sophisticated I am. So the dollar amount kind 

16 consider leaving it the same, but probably lean toward 16 of seems to me an arbitrary number, and I'm with these 

17 expanding it. I'm sitting here making some notes, and 17 folks over here. If nothing else, I would expand it, and 

18 I'm thinking about $200,000 or $300,000, if I'm sitting 18 if people want to be stupid, I mean protect the -- if the 

19 in a little small town in Texas, $200,000 is way 19 SEC wants to work on something work on the bad guys. 

20 different, and I'm in a position to make a 5,000, $10,000 20 Don't try to set regulation that protects people from the 

21 investment than if I'm making $200,000 and living in 21 bad guys. 

22 Manhattan. 22 I mean let us -- let whoever make the decisions 

23 So we don't even -- I mean you said the dollar 23 that feel like financially they can make with 

24 was set when it was, but if anybody pays any attention to 24 investments, et cetera. And then really attack hard the 

25 cost of living in the various states, the difference 25 guys that are out there calling the old lady in the 

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Page 166 Page 168 

1 tennis shoes and trying to sell her on a $10,000 deal or 1 that have expressed concerns, these are legitimate 

2 whatever. Get those guys, but don't try to make it 2 concerns, but maybe there are other ways to address them, 

3 tighter and tighter and raise that bar and drop half or 3 and at the root of some of these issues, maybe Regulation 

4 three quarters of the people who could legitimately make 4 D is part of the problem, maybe not. Again, that gets 

5 investments and take the risk. 5 back to the evidence question. 

6 MR. GRAHAM: Thank you. Does anyone else -­ 6 But it does make sense if we feel that for 

7 Tim. 7 example seniors are being preyed upon, then maybe we need 

8 MS. WALSH: I just had one comment. I think 8 to do a better job of educating seniors. Maybe we need 

9 John had mentioned someone buying stocks on E*Trade or 9 to do a better job, not that anybody was doing a bad job, 

10 Charles Schwab, really made me think of something. The 10 but perhaps a better job of enforcement. But in terms of 

11 investment firms that issue a lot of these private equity 11 taking a system that -- it's a hugely important ecosystem 

12 funds, venture capital funds, hedge funds you can buy on 12 to our economy, and tinkering with it in that -- in these 

13 your E*Trade account or your Charles Schwab account for 13 bases is something that we don't agree to. Is that kind 

14 5.99. They actually trade on the New York Stock 14 of roughly -- yeah. 

15 Exchange. There's also many-levered, closed in funds 15 MS. LUNA: I mean I think we reached a 

16 that -- when I say levered, they borrow money, which are 16 consensus to expand the definition because -­

17 risking a lot of the hedge funds I know that you can buy 17 MR. GRAHAM: Yeah, that's what I -­

18 again for 5.99 a click or whatever. And we don't 18 MS. LUNA: Okay. Okay. 

19 regulate them. 19 MR. GRAHAM: That's the sophistication part, 

20 So again, it goes to what John was mentioning 20 that's the expansion part. 

21 that we're -- the idea we can regulate just the private 21 Yes. Charles. 

22 side because the private doesn't -- we don't understand 22 MR. BALTIC: The only thing I would add is that 

23 it or it's bad is incorrect. There's hundreds of 23 in the spirit of the committee continuing to fulfill our 

24 billions of dollars of these traded every year that are 24 obligations, having the requisite data to continue to be 

25 on the New York Stock Exchange and NASDAQ. 25 informed in this subject would be very important, and so 

Page 167 Page 169 

1 MR. GRAHAM: Thanks. Well, it feels like we 1 I would encourage that we also be open to ongoing efforts 

2 have a consensus. It seems to be that the feeling of the 2 to compile data on numbers of offerings, numbers of 

3 group is that we have a system that's almost by 3 investors, actual amount of capital raised in private 

4 definition like any other system is not going to be 4 offerings so that we have the right lens to understand 

5 perfect. There are a lot of things that are noted as 5 how important this private capital formation is to the 

6 issues that are difficult to quantify. 6 economy, and so I think that should be an ongoing effort. 

7 There is a benefit that this sector provides 7 I know that the Commission is involved in that, and I 

8 that can be quantified, in terms of capital raise, in 8 would just stress that we should be mindful of that and 

9 terms of jobs created. And so the feeling seems to be 9 considerate of that on an ongoing basis. 

10 that no change should be made, and again, in the spirit 10 MR. GRAHAM: Good point. 

11 of doing no harm, allowing the system to continue to go 11 MR. PAUL: I just second that and then say that 

12 forward and to work. In addition to that, there seems to 12 that ought to be one of our recommendations to the 

13 be a sense that these numbers -- that we can -- again, 13 Commission specifically. 

14 who knows if they were right, who knows if they are 14 MR. GRAHAM: Yeah. 

15 right, but it's the standard that, again, is in place, 15 MR. PAUL: For more data. Right? 

16 and it works, but it probably is a good idea to put 16 MR. GRAHAM: Yeah. 

17 something in place so that going forward we -- they 17 MR. YADLEY: I think that also addresses the 

18 continue to bump up. 18 point that Tim made that we are in fact doing our work 

19 And there also seems to be a sense that the 19 and recommending that the Commission do so, too. This 

20 expanding could be a good idea. Finding an appropriate 20 Dodd-Frank requirement is every four years. So I think 

21 definition that is not -- that doesn't replace the 21 for now we don't believe that there needs to be a change 

22 existing regime, but is additive, that comes up with 22 for the reasons stated, and we do recommend affirmatively 

23 definitions that we consider appropriate for 23 that data be gathered so that the Commission will have 

24 sophistication. And there's a -- the notion that we're 24 more hard data about who's investing, how much they're 

25 -- that there could be -- that these are -- that people 25 investing. It was pointed out this morning that you 

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Page 170 

1 don't have to file a Form D at the end of the offering. 

2 I've never quite understood that myself, because that 

3 would certainly -- the whole purpose of Form D is for 

4 gathering data relevant to the SEC's mission, and why not 

5 have data about what happens, what actually happened. 

6 MR. GRAHAM: Thanks, Greg. 

7 Sara. 

8 MS. HANKS: Just one point about if the 

9 definition is to be expanded, it needs to be expanded in 

10 a way that is absolutely certain and gives issuers the 

11 ability to say yes or no in a binary way. Because we 

12 can't forget that the reason we got into this situation 

13 in 1980-wherever in the first place was in response to 

14 the fact that the predecessor definition of accredited 

15 investor was someone who has sophistication in financial 

16 affairs, so issuers tied themselves in knots trying to 

17 determine whether someone was sophisticated. So we want 

18 to learn from the accredited investor verification 

19 process and not get issuers into a situation where they 

20 can't rely on something that says definitively this. You 

21 can rely on this, and that's the end of it. 

22 MR. GRAHAM: I think you make a good point, and 

23 it's important that any definition that is developed is 

24 one that's going to work. And if people can't figure it 

25 out, if it's too subjective, then it's not going to work. 

Page 171 

1 But the thing that I would be most concerned about is if 

2 you were going to replace a current regime with these 

3 sophistication definitions. And so it gives me comfort 

4 that if the current system stays in place and this is 

5 purely additive, you haven't changed anything. You've 

6 only created an opportunity to perhaps expand assuming 

7 people can figure out. 

8 MS. HANKS: Give some folks more legal fees I 

9 suspect. 

10 MR. GRAHAM: Thank you. 

11 Catherine. 

12 MS. MOTT: Perhaps this is what Greg was 

13 saying. I think the -- and in light of what Tim was also 

14 saying earlier about maybe we should be tying it to some 

15 sort of index. We can't do that without the data, 

16 without enough data, but I think there is -- there could 

17 be a fear that Congress would set it, and without the 

18 data, and so maybe that would be a recommendation that in 

19 the next -- by the next four years when it has to be 

20 under review that we have enough data to make a good 

21 recommendation whether or not it's the CPI or something 

22 else. I don't know. 

23 MR. GRAHAM: Well, I think the recommendation 

24 is that we tie it to CPI. 

25 MS. MOTT: So that was a recommendation? 

Page 172 

1 MR. GRAHAM: Yes. 

2 MS. MOTT: I don't know. Does that make you 

3 uncomfortable? 

4 MR. GRAHAM: I would say let's -­

5 MS. MOTT: I don't feel comfortable without the 

6 data. 

7 MR. GRAHAM: Yeah, well, it's -­

8 PARTICIPANT: (Off-mic.) 

9 MS. MOTT: I know, but is -­

10 PARTICIPANT: (Off-mic.) 

11 MS. MOTT: Yeah, but I -- is a million the 

12 right number? I don't know. 

13 MR. GRAHAM: Well, see, that takes us back to 

14 the whole -­

15 MS. MOTT: I know. 

16 (Crosstalk.) 

17 MR. PAUL: I think that the notion -- and 

18 correct me if I'm wrong -- would be we want to do that 

19 preemptively so that we don't get something -- I think 

20 the word was draconian or additionally arbitrary later. 

21 Because at some point in time, whether it's five or ten 

22 years, a million dollars is really not going to be a 

23 million dollars. So rather than risk some sort of weird 

24 action in the future, we could be somewhat proactive. 

25 But I do get your -- I would like -- if we had the data 

Page 173 

1 now we could address it now. 

2 MS. MOTT: That's -- I just don't feel 

3 comfortable, but -­

4 MR. PAUL: Okay, no, that's fine. 

5 MR. REESE: I feel comfortable. I mean if we 

6 -- (laughter) -- because if it works now and build -- so 

7 the idea I think is if you start moving that number 

8 around, then you're tinkering with the idea that it 

9 works. So the idea if it works is we're talking about 

10 protecting ourselves or protecting the marketplace so 

11 that for further -- if someone else wants to decide on a 

12 number, we've at least offered a number that is tied to 

13 the consumer price index, which is by all economists, 

14 that's what they use to determine growth wages. 

15 MS. MOTT: You won me over. 

16 MR. GRAHAM: Yes, Richard. 

17 MR. LEZA: Well, it seems to me that we do need 

18 to put the index. The other thing that it seems to me 

19 that we need to keep this number at about 10 percent of 

20 the household, because that seems right. I would hate to 

21 see this number flame up and in four years we're talking 

22 about the people that qualify under this as close to 20 

23 percent because we started with 1 percent, but 10 percent 

24 of the financial people of the household population seems 

25 right to me and being able to do this. 

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Page 174 Page 176 

1 MS. MOTT: I wouldn't go there. 10 percent of 1 excessive number at all. 

2 a million, yes, but 10 percent of 10 million is totally 2 MR. GRAHAM: So -- oh, Javier. 

3 different. I don't think we should put in -- I mean it's 3 MR. SAADE: Just an observation. I'm not going 

4 a recommendation -­ 4 to take an opposition, but CPAs, JD, whatever the acronym 

5 MR. GRAHAM: Well, we don't -­ 5 alphabet soup is, when I bought companies for a living, 

6 MS. MOTT: It's already a recommendation. 6 if I was buying some microbiology-based technology, I 

7 MR. GRAHAM: We don't -- I -­ 7 wouldn't be asking some MBA for advice on how to 

8 MR. LEZA: Making a comment that -­ 8 structure a strippable warrant. I would be talking to a 

9 MR. GRAHAM: These are -- we can't predict the 9 microbiologist to see if the deal makes sense. So as -­

10 future, and I don't -- I think we can anticipate that 10 if the decision -- it sounds like it is -- is to expand 

11 there could be issues down the road depending on how the 11 the tent, one of the things I would respectfully -­

12 economy develops and everything else. And there may be 12 advice you consider is, yes, you -- it's great to have 

13 another need for a rule modification, but right now, I 13 the financial sophistication, because these are 

14 think we're talking about today and I think with 14 investments. 

15 currently what is on the table makes sense for me today. 15 But if it's a -- if you have domain expertise, 

16 It's not -- we're not going to put something in place 16 something that doesn't -- because lot of people will get 

17 today that's going to work forever, and we're not going 17 upset, a doctor that just started his or her career and 

18 to put something in place today that's going to properly 18 knows everything about oncology but hasn't made the 

19 address all things unforeseeable because that's just not 19 threshold is not allowed to invest in an oncology deal. 

20 the way things work. But I think in terms of what we are 20 So I would say don't think about it so specifically 

21 trying to do today -- I mean we're focused on a sector of 21 purely financial, because domain expertise sometimes in 

22 economy. We're focused on the job creation. We're 22 these early age stage deals is worth a lot more than 

23 focused on capital formation for smaller businesses. 23 somebody that can structure a convertible preferred. 

24 We're not unfocused on investor protection. We 24 MR. PAUL: I've got to push back on that for 

25 just don't feel that the evidence is there to suggest 25 two reasons. The first is that we need a bright-line 

Page 175 Page 177 

1 that what is currently in place is that big of a problem. 1 test, and if we don't have a bright-line test, it's not 

2 And so I think what -- the proposal on the table I think 2 going to be workable, and domain expertise becomes fuzzy. 

3 addresses those concerns and allows us to then move 3 Who's going to determine whether or not that person has 

4 forward and discuss other issues. 4 domain expertise. That's first. And second, in the end, 

5 But, Tim, you had something? 5 you're not buying oncology; you're buying a security. 

6 MR. WALSH: Just a last comment on the 6 So you do need some specific understanding of 

7 expansion. I did notice -- someone mentioned the CPAs, 7 the security that's being purchased, and I think that 

8 CFAs, MBAs, investment advisors, and just for all my 8 that -- I mean there's no doubt that domain expertise is 

9 fellow lawyer friends on the -- no one mentioned the JD. 9 incredibly important in evaluating an individual 

10 Just for your -­ 10 investment, but we're not trying to allow people, I don't 

11 MR. GRAHAM: Thank you, Tim. (Laughter.) 11 think, to invest in specific types -- rather specific 

12 There's a reason for that. There's a reason for that, 12 investments, but rather in an entire asset class. And so 

13 Tim. Okay, any other comments? 13 we need something a little bit broader. 

14 MR. PAUL: I would just say that 14 I mean I -- if I could -- if we could come up 

15 philosophically if I could have an entire population of 15 with something, I'm not opposed to it, but -- that's 

16 America that could take a test and demonstrate their 16 bright-line, but if it's not then we're going to bump 

17 sophistication, I would be comfortable with 100 percent 17 into some of the problems that John mentioned and that 

18 of the population if they could demonstrate their 18 Sara mentioned where if it's not bright-line, it's going 

19 aptitude and their understanding of the risk. So I don't 19 to cause the people to get jammed up as they did from 

20 have any arbitrary notion that it ought to be 2 percent, 20 1974 to 1982. And that would be -- that would create 

21 10 percent, or 20 percent. I would just like it to be 21 more problems, well, not maybe create more problems than 

22 smart people as opposed to merely rich people. 22 it solves, but it's certainly going to create some 

23 MR. CHACE: I agree, and -- put out the 10 23 difficulties. 

24 percent number, I don't think that's like -- we can call 24 MR. YADLEY: I think that's, again, both things 

25 it the right number as much as it doesn't seem an 25 are important, but in the context, I think of the 

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Page 178 Page 180 

1 discussion we're having. We're talking about 1 MR. GRAHAM: All those in favor? 

2 sophistication in the sense of people understanding the 2 (Chorus of ayes.) 

3 risks of the investment. So while that certainly goes to 3 MR. GRAHAM: All those opposed? Okay. And so 

4 each specific -- and that was the point I was trying to 4 what we'll do is we will sit down and try to actually 

5 make earlier about footnotes and financial statements. I 5 craft a set of recommendations that reflect the sentiment 

6 think the advice from a lawyer or an accountant or 6 of this committee, and then we'll have it circulated to 

7 somebody else who is used to giving advice will be it's a 7 make sure that everybody's in line with that. And 

8 security, it's debt, or it's equity, and it's in line -­ 8 hopefully we should be in a position to submit something 

9 the ABCD means this. 9 to the SEC within how much -- you think we can get that 

10 There are risks having to do with illiquidity, 10 done -­

11 how returns are affected. It's all of those sorts of 11 MR. GOMEZ: Steve, would you -- I would think 

12 things that go beyond the new doctor that says because 12 that you would want to have this specific language -­

13 she believes this is the cure to cancer, I want to invest 13 MR. GRAHAM: Oh, yeah. 

14 all my money in it. Well, wait a minute. You've got to 14 MR. GOMEZ: -- probably approved by the members 

15 understand what the company is going to do with the 15 themselves. 

16 money, what the FDA is going to do. You've got to 16 MR. GRAHAM: Oh, yeah, absolutely. Yeah, 

17 convince Wall Street to -- all those sorts of things, and 17 that's what I said. 

18 I think so by expanding the asset class, I think we're 18 MR. GOMEZ: And that will have to be done in a 

19 trying to do what I think the ACA is doing is that 19 public meeting. 

20 they're taking people who have sort of learned about how 20 MR. GRAHAM: Yeah, I think -- well, we'll work 

21 to play in this sandbox and what it means, and I think 21 this. 

22 the SEC can have a very important role in education in 22 MR. GOMEZ: We'll touch base on that. 

23 sectors and so on. 23 MR. GRAHAM: But we're going to put something 

24 So I agree. We don't want to make it so 24 together, and you're going to have an opportunity to look 

25 complicated that we're back to what Sara said, and you're 25 at it and approve it. We'll make sure it's in the right 

Page 179 Page 181 

1 making it more difficult for the issuer, and then the 1 forum, and we'll get that recommendation to the SEC. 

2 data that the SEC is going to get will be a jumble of 2 MS. JACOBS: I think in the past -­

3 data that will be inconsistent, and the agency won't 3 MR. GRAHAM: Let's -­

4 really know who's doing what. 4 MS. JACOBS: We have done it. 

5 MR. GRAHAM: Thank you. And the good thing is 5 MR. GRAHAM: Oh, yeah, I know that. 

6 that we're not going to try to come up with a definition. 6 MS. JACOBS: Okay. All right. 

7 We're going to come up with an idea, then we're going to 7 MR. GRAHAM: Okay. Well, the idea was that we 

8 recommend that the SEC pursue it. What I would like to 8 would spend the remaining time just touching up on kind 

9 -- the resolution that I'd like to put on the table is 9 of your ideas for some of the issues that we should pick 

10 that we recommend to the SEC that essentially we do no 10 up going forward. I think we've mentioned some of them 

11 harm, that we work to expand the definition because that 11 briefly during the day. Among them are disclosure 

12 part makes sense, that we attach a CPI adjustment to the 12 effectiveness, whether that's scale disclosure, more 

13 thresholds going forward, that we continue to gather data 13 meaningful disclosure, and the whole notion of a core 

14 on this segment so we understand it better, and that's 14 disclosure document. Secondary market liquidity, 

15 something that should be ongoing as far as this committee 15 codifying the 401 and a half, maybe broadening the use of 

16 is concerned, ongoing as far as the SEC is concerned, and 16 Form S3, those are just a couple of things that are on 

17 that we encourage that -- we encourage the SEC to find 17 top of mine from my point of view, and we'll kind of 

18 other ways to address situations involving, for example, 18 decide on what the agenda is going forward. 

19 fraud on senior citizens, that through -- whether that's 19 But to the extent that you have ideas that you 

20 through -- well, it should be through, as a minimum, 20 think we should at least consider taking up, you can 

21 increase investor education and also increased 21 either let us know in the next few minutes in this 

22 enforcement. Does anyone want to supplement that? Did I 22 context or feel free to shoot us an email. I think that, 

23 get it close? Okay, so that's -- anyone want to second 23 as I mentioned during lunch, this committee relatively 

24 that? 24 speaking has a short shelf life. Our term expires at the 

25 PARTICIPANT: (Off-mic.) 25 end of September, and we all know what that means. 

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Page 182 Page 184 

1 Looking forward, it seems like a long ways away. Looking 1 MS. JACOBS: All right. 

2 back, it's going to be just a blink. So there's -- I 2 MR. REESE: I was interested in looking at a 

3 want to be able to chart a path forward relatively soon 3 couple things. One is -- I don't know if this falls 

4 so we can start thinking about what -- in what ways it's 4 under disclosure, the Rule 144(a) and this other notion 

5 going to be feasible for us to make a difference as far 5 of large accredited investor, the fact that it represents 

6 as our mission is concerned. So with that, I open it 6 10 million in assets and it's a different status than 

7 back up. 7 what we've been talking about just now. Yeah, to 

8 MS. LUNA: So as a CPA, some of the items that 8 qualify. 

9 you were mentioning are a little foreign to me, but I 9 MR. GRAHAM: To qualify? 

10 catch on quickly, and I would say we should probably 10 MR. REESE: Yeah, you're at another level. I 

11 maybe get input from other people on what their one, two, 11 don't know what that brings to the market by just coming 

12 and three are for their priorities for the next meeting. 12 up with that class. 

13 I'm open because I -- these are some of the items that 13 MR. GRAHAM: Okay. Greg. 

14 you're bringing up just now are a little new to me. 14 MR. YADLEY: An issue that's been around for a 

15 MR. GRAHAM: And we're just -- this is -­ 15 while and is always one of the recommendations that the 

16 nothing is going to be set in stone. This is if you have 16 SEC Government Small Business Forum is finders or private 

17 a comment on what the agenda might look like going 17 placement brokers, individuals who can help companies 

18 forward, then here's your opportunity to make that 18 access small amounts of capital. The larger brokerage 

19 comment. And -- John. 19 firms and there are a fewer smaller brokerage firms, 

20 MR. BALTIC: I think the whole idea on the 20 there's a lot involved for them to try to raise small 

21 disclosure side of the relationship between S1 and S3, 21 amounts of money. It's really not their sweet spot, and 

22 whether it's expanding S3 or forward incorporation in S1, 22 there are a lot of individuals who have contacts that can 

23 and then the whole issue -- and maybe we can get somebody 23 bring good investors to smaller companies, are willing to 

24 to come in and give us a history on this, the idea of 24 do so on a contingent fee basis. That makes them a 

25 issuer registration as opposed to individual securities 25 broker, which means they need to be registered, and 

Page 183 Page 185 

1 registration, so looking at the Australian model perhaps 1 there's not really a category for that. So that would be 

2 as to how registration works down there. Is a company's 2 another piece of the puzzle of how to help smaller 

3 34 Act registrant fully compliant, they want to issue 3 companies get access to capital. 

4 common stock, they can issue the common stock, apply to 4 MR. GRAHAM: Okay. 

5 have it listed or tradable on the exchange, and it's a 5 MR. CHACE: On the tick size we addressed last 

6 few days as opposed to having to file a separate 6 session, and I don't think there's -- what else would 

7 registration statement for those. 7 there be to do in that? Because we recommended a trial, 

8 I think if we can get somebody to come in and 8 and that trial is now underway. 

9 give us some background on that and then look at that 9 MR. GRAHAM: Yeah, I don't think there's 

10 vis-à-vis S1 and S3 eligibility currently and either 10 anything more that we can do. I think the SEC has taken 

11 expanding S3 or making forward incorporation in S1 11 our recommendation. I think that there is a -- is a 

12 available, I think that's going to make the registrants' 12 pilot currently ongoing, or being structured? 

13 and issuers' lives far, far easier. Some of this is 13 MR. CHACE: I don't know. 

14 pretty esoteric, but it's very, very important for these 14 MR. GOMEZ: There's a comment right now that 

15 small companies. 15 it's about to end the comment period on a potential pilot 

16 MS. JACOBS: John, I think when we're talking 16 program. 

17 about the disclosure, it also is public company 17 MR. GRAHAM: Yeah, and if you recall, we were 

18 disclosure and effectiveness, and if you remember, we as 18 in favor of just implementing a change in those regs and 

19 a committee handled this, remember, that 250 market cap, 19 avoiding a pilot program because pilot doesn't sound very 

20 what -- and all of that for the existing public 20 permanent and making these changes is going to require 

21 companies. I think that's what -- I think that's what 21 significant investment. As a committee we felt that it 

22 the topic is referring to, not the S1, S2. It's -­ 22 was important not to have a pilot, that we actually make 

23 (Crosstalk.) 23 a change, but that's not where we ended up. Where we 

24 MR. GRAHAM: S3 eligibility, that's exactly 24 ended up is that we're going to eventually have a pilot 

25 what I'm referring to. 25 in place, and we'll see what happens. But I think that's 

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Page 186 

1 where we are, good, bad, or indifferent. 

2 Anything else? Well, I think we had a good 

3 day. This is a good committee. I appreciate everybody's 

4 contribution. It's -- again, this is a tough time of 

5 year in terms of things on everybody's plate and to take 

6 the time to get on planes and trains and show up and 

7 spend the day in a productive way is much appreciated. 

8 So happy holidays to everyone. We will run the 

9 process like it needs to be run, but you will have an 

10 opportunity to read some recommendations hopefully before 

11 the end of the year. So okay. 

12 (Whereupon, at 3:25 p.m., the meeting was 

13 concluded.) 

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48 (Page 186)