Antitrust, Competition, and Economic Regulation Alert
M&A Update
April 15, 2016
DOJ Action Against ValueAct for HSR Act Violation Signals
More Caution for Minority Investors and Activist
Stockholders
On April 4, 2016, the U.S. Department of Justice (DOJ) filed a complaint in
federal court against activist investor ValueAct Capital (ValueAct) for violating
the reporting and waiting period requirements of the Hart-Scott-Rodino
Antitrust Improvements Act of 1976 (HSR Act). The complaint alleges that
minority investments of over $2.5 billion in Halliburton Company (Halliburton)
and Baker Hughes Incorporated (Baker Hughes), after they had announced
an agreement to merge, by two of ValueAct’s affiliated funds fell outside the
HSR Act’s so-called investment-only exemption and therefore were subject to
premerger notification requirements.
This enforcement action follows a similar proceeding brought in August 2015
by the Federal Trade Commission (FTC) against Third Point, LLC (and three
affiliated investment funds), another activist investor that, like ValueAct, relied
on the investment-only exemption to the HSR Act notification requirements.
Taken together, these cases reemphasize the need for investors to be
cautious when relying on the investment-only exemption. The cases reveal
that the U.S.
antitrust agencies are aggressively enforcing their narrow
interpretation of the exemption, particularly when it comes to activist
investors.
The DOJ complaint against ValueAct, like the FTC’s allegations against Third
Point, focuses on whether ValueAct’s actions and statements were consistent
with an investment-only intent. Under the HSR Act, if an acquisition of voting
securities of a public or private corporation would result in certain threshold
tests being met, the “acquiring person” and the “acquired person” generally
must (a) submit a premerger notification to the U.S. antitrust agencies and (b)
observe a waiting period before the acquiring person may acquire such
voting securities.
These notification and waiting period requirements do not,
however, apply if the acquisition falls within an HSR Act
exemption—including the HSR Act’s exemption for acquisitions made solely
for the “purpose of investment.”
Although ValueAct apparently sought to rely upon this investment-only
exemption in connection with the investments in Halliburton and Baker
Hughes, the DOJ complaint alleges that ValueAct’s actions and public
statements demonstrated a clear intention to influence the business
strategies of the two companies – facts inconsistent with an investment-only
intent. Therefore, according to the DOJ, ValueAct could not rely on the
investment-only exemption to justify its failure to file HSR notifications and
observe the HSR waiting period before acquiring shares valued in excess of
the HSR threshold tests.
Contacts
Joseph E. Gilligan (Co-Editor)
Partner, Washington, D.C.
+1 202 637 5945
joseph.gilligan@hoganlovells.com
Michele S.
Harrington (Co-Editor)
Partner, Washington, D.C.
+1 703 610 6173
michele.harrington@hoganlovells.com
Alexander B. Johnson (Co-Editor)
Partner, New York
+1 212 918 3030
alex.johnson@hoganlovells.com
Nathaniel P. Gallon
Partner, Silicon Valley
+1 650 463 4064
ngallon@hoganlovells.com
Robert F.
Baldwin III
Senior Associate, Washington, D.C.
+1 202 637 2092
robert.baldwin@hoganlovells.com
Robert N. Hayes
Senior Associate, Washington, D.C.
+202 637 5754
robert.hayes@hoganlovells.com
hoganlovells.com
The DOJ is seeking a civil penalty of at least US$19 million and a restraint
against ValueAct from any future violations of the HSR Act. The complaint
notes that this was the third violation of the HSR Act that ValueAct has
committed by acquiring securities without filing the necessary notifications.
The previous two violations resulted in no enforcement action and a
settlement of $1.1 million, respectively.
Background
On November 17, 2014, Halliburton and Baker Hughes announced their
plans to merge.
In December 2014, ValueAct Master Capital Fund, L.P.
(Master Fund) began purchasing Halliburton voting shares. By December 5,
2014, Master Fund held in excess of $75.9 million worth of Halliburton voting
shares, exceeding the then-applicable HSR size-of-transaction threshold test.
Master Fund continued to acquire Halliburton shares, holding in excess of
$1.4 billion worth of such shares by June 30, 2015, but did not file an HSR
notification to report its acquisition of Halliburton shares. By January 27,
2016, Master Fund had sold a sufficient number of Halliburton shares so that
it held less than the applicable HSR size-of-transaction threshold amount.
As
a result, according to the DOJ, Halliburton was in violation of the HSR Act
between December 5, 2014 and January 27, 2016. Maximum penalties for
this violation would be $16,000/day for each day Master Fund was in violation
of the HSR Act.
Toward the end of November 2014, Master Fund began purchasing voting
shares of Baker Hughes. By December 1, 2014, it held in excess of $75.9
million worth of voting shares of Baker Hughes, exceeding the thenapplicable HSR size-of-transaction threshold test.
After subsequent
acquisitions of Baker Hughes shares, on January 15, 2015, Master Fund held
over $1.2 billion worth of such shares. According to the DOJ, Master Fund’s
violation of the HSR Act therefore began on December 1, 2014, and
continues to the present because it still holds Baker Hughes shares valued
over the HSR size-of-transaction threshold test. Again, maximum penalties
are $16,000/day for each day of the violation.
In February 2015, ValueAct Co-Invest International, L.P.1 (Co-Invest Fund),
another affiliated entity of ValueAct, began purchasing voting shares of
Halliburton.
By March 10, 2015, it held Halliburton shares valued over the
HSR size-of-transaction threshold test (then $76.3 million). By January 22,
2016, it had sold sufficient Halliburton shares so it no longer held Halliburton
shares valued over the size-of-transaction threshold test. According to the
DOJ, it was therefore in violation of the HSR Act from March 10, 2015
through January 22, 2016, again with maximum penalties of $16,000/day for
each day of the violation.
The HSR investment-only exemption
Under the “solely for the purpose of investment” exemption of the HSR Act,
“[a]n acquisition of voting securities shall be exempt from the requirements of
the [HSR] act … if made solely for the purpose of investment and if, as a
result of the acquisition, the acquiring person would hold ten percent or less
of the outstanding voting securities of the issuer,….” 16 C.F.R.
Section
802.9. The HSR Act rules define “solely for the purpose of investment” to
mean that “the person holding or acquiring such voting securities has no
intention of participating in the formulation, determination, or direction of the
basic business decisions of the issuer.” 16 C.F.R. Section 801.1(i)(1).
In practice, merely exercising voting rights is not inconsistent with an
investment-only purpose.
However, the FTC has indicated that the following
types of conduct would be considered inconsistent with an investment-only
purpose:
• nominating a candidate for the board of directors of the issuer;
• proposing corporate action requiring shareholder approval;
• soliciting proxies;
• having a controlling shareholder, director, officer or employee
simultaneously serving as an officer or director of the issuer;
• being a competitor of the issuer, holding over 10% interests in a
competitor of the issuer, or having a board seat on a competitor of
the issuer; or
• doing any of the foregoing with respect to any entity under common
control with the issuer.
FTC Statement of Basis and Purpose for the HSR Regulations (July 31,
1978).
DOJ Allegations
The DOJ complaint claims that the investment-only exemption of the HSR Act
does not apply to the two ValueAct funds’ acquisitions of Halliburton and
Baker Hughes voting shares. The DOJ supports this claim by alleging the
following:
• When Value Act began acquiring shares of Halliburton and Baker
Hughes, soon after the announcement of their merger, ValueAct
“anticipated influencing the business decisions of the companies as
the merger process unfolded.” Complaint at # 3. For example,
ValueAct told its investors that its purchase of shares in the
companies allowed it to “be a strong advocate for the deal to close”
and, should the merger encounter regulatory hurdles, positioned
ValueAct “to help develop the new terms” of the transaction.
Id.
• ValueAct “met frequently with executives of both companies.” Id. at
#4. “From December 2014 through January 2016, ValueAct met in
person or had teleconferences more than fifteen times with senior
management of Halliburton or Baker Hughes, including meeting
multiple times with the CEOs of both companies.
ValueAct partners
also exchanged a number of emails with management at both firms
about the merger and the companies’ respective operations.” Id. at
#26.
• After crossing the HSR size-of-transaction threshold on December
1, 2014, ValueAct’s CEO met with Baker Hughes’s CEO and
emphasized the importance of Baker Hughes focusing on certain
opportunities, whether or not the merger occurred. Id.
at #27.
• On January 16, 2015, ValueAct filed a Schedule 13D with the
Securities and Exchange Commission (SEC) disclosing its stake in
Baker Hughes and noting that “it might discuss ‘competitive and
strategic matters’ with Baker Hughes and propose ‘changes in
[Baker Hughes’] operations.’” Id. at #28.
• In March 2015, ValueAct contacted Halliburton and offered to help
with the shareholder vote on the merger. Id.
at #30.
• On May 13, 2015, ValueAct met with Halliburton’s CEO to discuss
“actions that Halliburton could take in an attempt to achieve its
target merger synergies.” Id. at #31.
• On August 31, 2015, ValueAct met with Baker Hughes’s CEO to
discuss selling individual Baker Hughes segments if the merger ran
into problems. Id.
at #34. ValueAct also discussed with Halliburton
restructuring the merger in August and again in September 2015. Id.
at #36.
• At a September 18, 2015 meeting with Halliburton’s CEO, ValueAct
shared Baker Hughes’s plans if the merger did not close.
Id. at #37.
According to the DOJ, “ValueAct offered to use its position as a
shareholder to pressure Baker Hughes’s management to change its
business strategy in ways that could affect Baker Hughes’s
competitive future.” Id.
• In September 2015, ValueAct met with Halliburton’s CEO to discuss
plans for executive compensation changes. Id.
at #32. ValueAct had
reached out to Halliburton’s CEO to schedule this meeting on July
14, 2015, and may have been considering this action as early as
December 2014. Id.
at #24.
• On November 5, 2015, ValueAct made a detailed presentation to
Baker Hughes’s CEO “proposing operational and strategic changes
to the Company” Id. at #39. ValueAct also “lobbied Halliburton’s
senior management to pursue alternative ways to get the deal
done.” Id.
The DOJ complaint concludes that these actions demonstrate ValueAct’s
plan “from the outset to take steps to influence the business decisions of both
companies” as they navigated the merger process.
Id. at #4. According to the
DOJ complaint, ValueAct:
Intended to use its position as a major shareholder [of both]
companies to obtain access to management, to learn information
about the merger and the companies’ strategies in private
conversations with senior executives, to influence those executives to
improve the chances that the merger would be completed, and to
influence other business decisions whether or not the merger went
forward.
Id. at #5.
In the DOJ’s view, because of these activites, ValueAct could not invoke the
“investment-only exemption” to justify its failure to report its acquisitions
under the HSR Act.
Key Takeaways
The DOJ action against ValueAct, coupled with the FTC’s action against
Third Point, underscore the need to proceed with caution before relying on
the HSR investment-only exemption, even when acquiring and holding only a
minority stake in a corporation. This is especially true for activist funds whose
publicly announced strategy may be to pursue “‘active, constructive
involvement’ in the management of the companies in which [they] invest.”
Complaint at #12 (quoting ValueAct’s website).
In the view of the DOJ and the FTC, the investment-only exemption would
not be available to acquiring persons who request and/or attend meetings
with an issuer’s management or board of directors to influence the issuer with
respect to corporate decisions, or who recommend that the issuer undertake
certain actions (including, among other things, actions related to executive
compensation, strategy, cost cutting measures, or merger or acquisition
agreements).
Public or even internal consideration of seeking a board seat,
soliciting new directors, or advocating for a change of directors could also be
inconsistent with the exemption.
Moreover, because the exemption is not available if, among other things, the
acquiring person has the subjective intent to influence management of the
issuer, it is not only the acquiring person’s actual acts that may make the
exemption unavailable. The U.S. antitrust agencies will often examine, in
addition to a company’s actions with respect to an issuer, its public
statements (including those that articulate general investment strategies), its
SEC filings concerning the issuer, and its internal documents, including emails and other communications with its own investors.
Of course, any
communication (whether oral or in writing) between the acquiring person and
management or directors of the issuer will also be relevant to assessing the
acquiring person’s subjective intent to influence management of the issuer.
The investment-only exemption may also be unavailable if the acquiring
person holds an ownership interest greater than 10% in a competitor of the
issuer, or holds any interest in a competitor of the issuer other than solely for
investment purposes. Therefore, before relying on this exemption, the
acquiring person should review its other holdings and contemplated
acquisitions.
Given that the U.S. antitrust agencies have demonstrated an aggressive
approach to enforcing the limits of the investment-only exemption, it is
advisable for acquiring persons to exercise caution and consult with
experienced HSR Act counsel before relying on the investment-only
exemption to complete an acquisition of voting securities (even if only a small
percentage of an issuer’s outstanding voting securities).
*With contributions by Michael P.
Glasser, Professional Support Lawyer
1
Co-Invest Fund does not share the same ultimate parent entity with Master Fund and is therefore
considered a separate entity from Master Fund for HSR purposes.
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