Market Cops Got Power to Pursue Spoofers After Years of Failure
Traders Magazine Online News, May 15, 2015
Matthew Leising
(Bloomberg) -- The Commodity Futures Trading Commission was tired of losing.
With only one court victory in manipulation cases dating back to the agency’s creation in 1974, concern had swelled at the little-known regulator that help was needed to catch cheaters in U.S. derivatives markets. They got it with the Dodd- Frank Act in 2010, which ushered in the most sweeping reforms of Wall Street rules since the 1930s.
“When I first heard about the high hurdle we had to prove manipulation, it amazed me,” said Bart Chilton, a CFTC commissioner from 2007 to 2014. “The fact that there was only one successful case in 35 years was the best argument we had for why the law needed to be changed.”
The tool that the CFTC won -- a new category of illegal, or “disruptive,” trading -- now faces its biggest test following the April 21 arrest of Navinder Singh Sarao. U.S. prosecutors allege that the London-based stock-futures trader engaged in five years of improper conduct known as layering and spoofing and contributed to the May 2010 plunge known as the flash crash.
Long before anyone had heard of Sarao, CFTC officials knew they had to sharpen their ability to prove manipulation in the markets they oversee. Prior to Dodd-Frank, agency lawyers had to prove four elements in a manipulation case, including that an “artificial” price had been created. That had proved to be very difficult over the years.
“Everyone on the commission, including myself, agreed we needed broader authority in this area,” said Jill Sommers, a commissioner from 2007 to 2013. The goal, she said, was “to not have such a high bar when it came to proving manipulation.”
Gensler’s Request
The original impetus to seek a simpler means of proving manipulation came from CFTC Chairman Gary Gensler, who instructed both the general counsel’s office and the enforcement division to devise a new method, said Dan Berkovitz, the regulator’s general counsel from 2009 to 2013.
The spoofing definition first appeared in the version of Dodd-Frank passed by the House of Representatives on Dec. 11, 2009, according to a history of the bill posted on the website of the Law Librarians’ Society of Washington D.C. The Senate passed its version on May 20, 2010. President Barack Obama signed it into law on July 21, 2010.
“This was a big provision to get in there,” Berkovitz said. “To get away from the four-part test and have a simpler test for conduct that is basically a type of manipulation was a really powerful tool for the agency.”
Juice, Eggs
The old manipulation definition was written to prevent a squeeze on physical commodities like frozen concentrated orange juice or eggs, Berkovitz said. But markets had evolved well beyond that, with most trading linked to intangible assets like the stock futures Sarao bought and sold, and bets on interest rates. Dodd-Frank made the rules reflect the new reality.
“It was really important to get the commission the authority that was more tailored to the modern market,” Berkovitz said.
Now it’s up to the U.S. government to see whether it can secure a conviction of Sarao using the simpler standard.