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Goldman Sachs Asset Management, L.P. et al.
Headnote
Section 80 of the Commodity Futures Act (Ontario) (the CFA) -- Relief from the adviser registration requirement of paragraph 22(1)(b) of the CFA granted to a sub-adviser headquartered in a foreign jurisdiction in respect of advice regarding trades in commodity futures contracts and commodity futures options, subject to certain terms and conditions -- Relief mirrors exemption available in section 8.26.1 of National Instrument 31-103 Registration Requirements, Exemptions and Ongoing Registrant Obligations made under the Securities Act (Ontario) -- Relief is subject to a sunset clause.
Subsection 78(1) of the Commodity Futures Act (Ontario) -- Order also revokes prior order of the Commission dated June 17, 2015, In the Matter of Goldman Sachs Asset Management, L.P. and Goldman Sachs Asset Management International that would otherwise have expired on June 16, 2020.
Applicable Legislative Provisions
Commodity Futures Act, R.S.O. 1990, c. C.20, as am., ss. 1(1), 22(1)(b), 78(1), 80.
Securities Act, R.S.O. 1990, c. S.5, as am., s. 25(3).
National Instrument 31-103 Registration Requirements, Exemptions and Ongoing Registrant Obligations, s. 8.26.1.
Ontario Securities Commission Rule 35-502 Non-Resident Advisers, s. 7.11.
Applicable Orders
In the Matter of Goldman Sachs Asset Management, L.P. and Goldman Sachs Asset Management International, (2015), 38 OSCB 5987
IN THE MATTER OF THE COMMODITY FUTURES ACT, R.S.O. 1990, CHAPTER C.20, AS AMENDED (the CFA) AND IN THE MATTER OF GOLDMAN SACHS ASSET MANAGEMENT, L.P. AND GOLDMAN SACHS ASSET MANAGEMENT INTERNATIONAL AND GOLDMAN SACHS ASSET MANAGEMENT (SINGAPORE) PTE. LTD.
ORDER (Subsection 78(1) and Section 80 of the CFA)
UPON the application (the Application) of Goldman Sachs Asset Management, L.P. (the Principal Adviser), Goldman Sachs Asset Management International (GSAMI) and Goldman Sachs Asset Management (Singapore) Pte. Ltd. (GSAM Singapore and together with GSAMI, the Sub-Advisers and each a Sub-Adviser) to the Ontario Securities Commission (the Commission) for an order:
(a) pursuant to subsection 78(1) of the CFA revoking the exemption order granted by the Commission to the Principal Adviser and GSAMI on June 17, 2015 (the Previous Order); and
(b) pursuant to section 80 of the CFA, that each Sub-Adviser and any individuals engaging in or holding themselves out as engaging in the business of advising others when acting on behalf of the applicable Sub-Adviser in respect of the Sub-Advisory Services (as defined below) (the Representatives) be exempt, for a specified period of time, from the adviser registration requirements in paragraph 22(1)(b) of the CFA when acting as a sub-adviser for the Principal Adviser in respect of the Clients (as defined below) regarding commodity futures contracts and commodity futures options (the Contracts) traded on commodity futures exchanges and cleared through clearing corporations.
AND UPON considering the Application and the recommendation of staff of the Commission;
AND UPON the Sub-Advisers and the Principal Adviser having represented to the Commission that:
The Principal Adviser
1. The Principal Adviser is a limited partnership governed by the laws of the State of Delaware with its head office in New York, New York. The general partner of the Principal Adviser is The Goldman Sachs Group, Inc. (The GS Group) and the limited partner of the Principal Adviser is Goldman Sachs Global Holdings L.L.C.
2. The Principal Adviser is an indirectly wholly-owned subsidiary of The GS Group, a public company listed on the New York Stock Exchange.
3. The Principal Adviser is registered with the United States Securities and Exchange Commission as an investment adviser and with the Commodity Futures Trading Commission as a commodity trading advisor and a commodity pool operator.
4. The Principal Adviser is registered with the Commission under the Securities Act (Ontario) (the OSA) as an adviser in the category of portfolio manager and, under the CFA as an adviser in the category of commodity trading manager.
5. The Principal Adviser is also registered as an adviser in the category of portfolio manager in British Columbia, Alberta, Saskatchewan and Manitoba, New Brunswick, Newfoundland and Labrador, Nova Scotia and Prince Edward Island and as a portfolio manager and derivatives portfolio manager in Québec under the relevant securities legislation of the respective jurisdiction.
6. The Principal Adviser is not in default of securities, commodity futures or derivatives legislation in any jurisdiction in Canada.
The Sub-Advisers
7. GSAMI is organized under the laws of England and Wales. The head office of the GSAMI is located in London, England.
8. GSAM Singapore is organized under the laws of Singapore. The head office of GSAM Singapore is located in Singapore.
9. Each Sub-Adviser is an indirectly wholly-owned subsidiary of The GS Group and is an affiliate of the Principal Adviser.
10. GSAMI is authorised and regulated to carry on regulated activity in the United Kingdom by the Financial Conduct Authority (Reference number: 147212), where it has the status of Authorized firm. In the United Kingdom, GSAMI is authorized and permitted to conduct the Sub-Advisory Services, including the following activities: (i) advising on investments (except on pensions transfers and pension opt outs); (ii) advising on P2P agreements; (iii) agreeing to carry on a regulated activity; (iv) arranging deals in investments; (v) arranging safeguarding and administration of assets; (vi) dealing in investments as an agent; (vii) establishing, operating or winding up an unregulated collective investment scheme; (viii) making arrangements with a view to transactions in investments; and (ix) managing investments, in each case, as further described at https://register.fca.org.uk/.
11. GSAM Singapore is authorized and regulated to carry on regulated activity in Singapore by the Monetary Authority of Singapore, where it has the status of Capital Markets Services Licensee and Exempt Financial Adviser. In Singapore, GSAM Singapore is authorized and permitted to conduct the Sub-Advisory Services, including the following activities: (i) fund management; (ii) dealing in capital markets products that are units in a collective investment scheme; and (iii) advising on investment products.
12. Each Sub-Adviser is registered in a category of registration, or operates under an exemption from registration, under the commodities futures or other applicable legislation of the jurisdiction where its head office is located that permits it to carry on the activities in that jurisdiction that registration as an adviser under the CFA would permit it to carry on in Ontario. As such, it is authorized and permitted to carry on the Sub-Advisory Services in the jurisdiction where its head office is located.
13. Each Sub-Adviser engages in the business of an adviser in respect of Contracts in the jurisdiction where its head office is located.
14. GSAMI is not registered in any capacity under the CFA. In Ontario, Alberta, British Columbia and Québec, GSAMI acts in reliance on exemptions from the requirement to register as an adviser under the OSA and the provincial securities legislation in Alberta, British Columbia and Quebec available to international advisers and international sub-advisers pursuant to section 8.26 and section 8.26.1, respectively, of National Instrument 31-103 -- Registration Requirements, Exemptions and Ongoing Registrant Obligations (NI 31-103).
15. GSAM Singapore is not registered in any capacity under the CFA or the OSA, nor is it registered in any capacity under the securities legislation of any other jurisdiction in Canada.
16. Neither Sub-Adviser is in default of securities, commodity futures or derivatives legislation in any jurisdiction in Canada. Each Sub-Adviser is in compliance in all material respects with the securities laws, commodity futures laws and derivatives laws in the jurisdiction where its head office is located.
The Clients
17. The Principal Adviser provides investment advice and/or discretionary portfolio management services in Ontario to (i) investment funds, the securities of which are qualified by prospectus for distribution to the public in Ontario and the other provinces and territories of Canada (the Investment Funds); (ii) pooled funds, the securities of which are sold on a private placement basis in Ontario and certain other provinces and territories of Canada pursuant to prospectus exemptions contained in National Instrument 45-106 Prospectus Exemptions (the Pooled Funds); (iii) clients who have entered into investment management agreements with the Principal Adviser to establish managed accounts (the Managed Account Clients); and (iv) other Investment Funds, Pooled Funds and Managed Account Clients that may be established or retained in the future and in respect of which the Principal Adviser engages the Sub-Adviser to provide portfolio advisory services (the Future Clients) (each of the Investment Funds, Pooled Funds, Managed Account Clients and Future Clients being referred to individually as a Client and collectively as the Clients).
18. Certain of the Clients may, as part of their investment program, invest in Contracts. The Principal Adviser acts as a commodity trading manager in respect of such clients.
The Sub-Advisory Services
19. In connection with the Principal Adviser acting as an adviser to Clients in respect of the purchase or sale of Contracts, the Principal Adviser, pursuant to a written agreement made between the Principal Adviser and the applicable Sub-Adviser, has retained (or will retain) the applicable Sub-Adviser to act as a sub-adviser to the Principal Adviser in respect of securities and Contracts in which the applicable Sub-Adviser has experience and expertise by exercising discretionary authority on behalf of the Principal Adviser, in respect of all or a portion of all of the assets of the investment portfolios of the Clients, including discretionary authority to buy or sell Contracts for the Clients (the Sub-Advisory Services), provided that such investments are consistent with the investment objectives and strategies of the applicable Client.
20. Paragraph 22(1)(b) of the CFA prohibits a person or company from acting as an adviser unless the person or company is registered as an adviser under the CFA, or is registered as a representative or as a partner or an officer of a registered adviser and is acting on behalf of such registered adviser.
21. By providing the Sub-Advisory Services, each Sub-Adviser will be engaging in, or holding itself out as engaging in, the business of advising others with respect to Contracts, and, in the absence of being granted the requested relief, would be required to register as an adviser under the CFA.
22. There is presently no rule or other regulation under the CFA that provides an exemption from the adviser registration requirement in paragraph 22(1)(b) of the CFA that is similar to the exemption from the adviser registration requirement in subsection 25(3) of the OSA which is provided under section 8.26.1 of NI 31-103.
23. The relationship among the Principal Adviser, either Sub-Adviser and any Client is consistent with the requirements of section 8.26.1 of NI 31-103.
24. A Sub-Adviser will only provide the Sub-Advisory Services as long as the Principal Adviser is, and remains, registered under the CFA as an adviser in the category of commodity trading manager.
25. As would be required under subsection 8.26.1(1) of NI 31-103:
(a) the obligations and duties of each Sub-Adviser are, or will be, set out in a written agreement with the Principal Adviser; and
(b) the Principal Adviser has entered into, or will enter into, a written agreement with each Client, agreeing to be responsible for any loss that arises out of the failure of the applicable Sub-Adviser:
(i) to exercise the powers and discharge the duties of its office honestly, in good faith and in the best interests of the Principal Adviser and each Client, or
(ii) to exercise the degree of care, diligence and skill that a reasonably prudent person would exercise in the circumstances (together with (i), the Assumed Obligations).
26. The written agreement between the Principal Adviser and the applicable Sub-Adviser sets out, or will set out, the obligations and duties of each party in connection with the Sub-Advisory Services and permits, or will permit, the Principal Adviser to exercise the degree of supervision and control it is required to exercise over the applicable Sub-Adviser in respect of the Sub-Advisory Services.
27. The Principal Adviser delivers, and will continue to deliver, to the Clients all required reports and statements under applicable securities, commodity futures and derivatives legislation.
28. The prospectus or other offering document (in either case, the Offering Document), if any, for each Client that is an Investment Fund or a Pooled Fund and for which the Principal Adviser engages one or both Sub-Advisers to provide the Sub-Advisory Services includes, or will include, as the case may be, the following disclosure (the Required Disclosure):
(a) a statement that the Principal Adviser is responsible for any loss that arises out of the failure of either Sub-Adviser to meet the Assumed Obligations; and
(b) a statement that there may be difficulty in enforcing any legal rights against the Sub-Advisers (or any of their Representatives) because the Sub-Advisers are resident outside of Canada and all or substantially all of their assets are situated outside of Canada.
29. The Required Disclosure is provided in writing prior to the purchasing of any Contracts for each Client that is a Managed Account Client for which the Principal Adviser engages one or both Sub-Advisers to provide the Sub-Advisory Services.
Previous Order
30. On June 17, 2015, the Previous Order granted GSAMI and its Representatives an exemption from the adviser registration requirement in paragraph 22(1)(b) of the CFA in respect of Sub-Advisory Services provided to the Principal Adviser. GSAMI currently provides the Sub-Advisory Services pursuant to the Previous Order. The Previous Order was granted for a period of five years.
31. The Principal Adviser and GSAMI have complied with, and are currently in compliance with, all of the terms and conditions of the Previous Order.
AND UPON being satisfied that it would not be prejudicial to the public interest for the Commission to grant the exemption requested;
IT IS ORDERED, pursuant to subsection 78(1) of the CFA, that the Previous Order is revoked;
AND IT IS ORDERED, pursuant to section 80 of the CFA, that each Sub-Adviser and its Representatives are exempt from the adviser registration requirement in paragraph 22(1)(b) of the CFA when acting as a sub-adviser to the Principal Adviser in respect of the Sub-Advisory Services provided that at the time that such activities are engaged in:
(a) the Principal Adviser is registered under the CFA as an adviser in the category of commodity trading manager;
(b) the Sub-Adviser's head office or principal place of business is in a jurisdiction outside of Canada;
(c) the Sub-Adviser is registered in a category of registration, or operates under an exemption from registration, under the commodity futures or other applicable legislation of the jurisdiction outside of Canada in which its head office or principal place of business is located, that permits it to carry on the activities in that jurisdiction that registration as an adviser under the CFA would permit it to carry on in Ontario;
(d) the Sub-Adviser engages in the business of an adviser in respect of Contracts in the jurisdiction outside of Canada in which its head office or principal place of business is located;
(e) the obligations and duties of the Sub-Adviser are set out in a written agreement with the Principal Adviser;
(f) the Principal Adviser has entered into a written agreement with each Client, agreeing to be responsible for any loss that arises out of any failure of the Sub-Adviser to meet the Assumed Obligations;
(g) the Offering Document of each Client that is an Investment Fund or Pooled Fund for which the Principal Adviser engages the Sub-Adviser to provide the Sub-Advisory Services will include the Required Disclosure; and
(h) the Required Disclosure is provided in writing prior to the purchasing of any Contracts for each Client that is a Managed Account Client for which the Principal Adviser engages the Sub-Adviser to provide the Sub-Advisory Services.
AND IT IS FURTHER ORDERED that this Order will terminate on the earliest of
(a) the expiry of any transition period as may be provided by law, after the effective date of the repeal of the CFA;
(b) six months, or such other transition period as may be provided by law, after the coming into force of any amendment to Ontario commodity futures law (as defined in the CFA) or Ontario securities law (as defined in the OSA) that affects the ability of either Sub-Adviser to act as a sub-adviser to the Principal Adviser in respect of the Sub-Advisory Services; and
(c) five years after the date of this Order.
DATED at Toronto, Ontario this 16th day of June 2020.
"Cecilia Williams"
Commissioner
Ontario Securities Commission
"Garnet Fenn"
Commissioner
Ontario Securities Commission