Kaufman’s Better Ideas On Market Structure
Kate Welling of Weedon directs or attention to the following:
Kaufman’s Better Ideas On Market Structure (PDF)
August 5, 2010
The Honorable Mary L. Schapiro, Chairman
U.S. Securities and Exchange Commission
100 F Street, NE
Washington, DC 20549-1090
Re: Ongoing Market Structure Review
Dear Chairman Shapiro (Mary):
I am writing to you once again out of concern for the credibility of our equity markets. You have said on several occasions that the markets exist to serve two primary functions: (1) capital formation, so companies can raise capital to invest, create jobs and grow; and (2) attracting and serving long-term investors to help facilitate the capital formation process.
I wholeheartedly endorse this philosophy. The Securities and Exchange Commission’s review should assess every market structure and practice through this lens and determine, first and foremost, the degree to which each feature serves or detracts from those functions. Despite the enormous and important workload Congress has placed on the Commission by enacting the Dodd-Frank Wall Street Reform and Consumer Protection Act, I hope you agree with me that it is critical for the Commission to continue its work in this area expeditiously and propose further needed changes.
The May 6 “flash crash,” during which liquidity dried up and the stock markets failed their essential price discovery function for a harrowing 20 minutes, exposed serious flaws in our market structure. In its aftermath, the commissioners and staff of the SEC and Commodity Futures Trading Commission (CFTC) worked heroically to try to understand the unusual trading activity of that day and draw needed lessons. While putting in place stock-specific circuit breakers was a useful first step, much work remains if we are to restore investor confidence and ensure our markets are strong and credible.
In particular, several areas of current market structure lead me to be concerned about the performance of the markets for investors and companies seeking to raise capital. The proliferation of exchanges and other market centers that has increased fragmentation, the substantial rise in volume executed internally by broker-dealers or in dark pools, excessive messaging traffic, the dissemination of proprietary market data catering to high frequency traders, and order-routing inducements all may be combining in ways that cast doubts on the depth of liquidity, stability, transparency and fairness of our equity markets. These areas deserve further review and possible rulemaking by the Commission. Repairing investor confidence and fixing a broken market structure cannot take a back seat to the Commission’s other statutorily imposed responsibilities.
For example, while speed and efficiency can produce certain benefits, they have also created a micro-arms race that is being waged in our public marketplace by high frequency traders and others. At least partially as a result, much of the deepest and most valuable order flew has retreated from the “lit” public markets to dark trading venues. Accordingly, some market participants argue that high frequency traders have certain advantages and, therefore, should be subjected to trading obligations and other regulations. High frequency traders, on the other hand, complain that the best liquidity to trade against (retail and large orders) is routed to dark markets. With that being the case, they question why they should be obligated to make markets on public venues, where they are trading against dark pool “exhaust” and competing with other sophisticated traders, leaving them with razor-thin per-trade profits.
The answer, in my view, lies in both directions: we must improve the quality of the public marketplace by harmonizing and reducing the fragmentation in ways that diminish those parts of the high frequency “arms race” that have no social utility. At the same time, however, we must reduce the amount of order flow executed internally by broker-dealers and in dark pools.
It may seem counterintuitive, but the Commission should even examine whether regulation should aim not to facilitate narrow spreads with little size or depth of orders, but instead promote deep order books -and if necessary -wider markets with large protected quote size. Wider spreads with a large protected quote size on both sides may facilitate certainty of execution with predictable transparent costs. Narrow fluctuating spreads, on the other hand, with small protected size and thin markets, can mean just the opposite -and actual trading costs can be high, hidden and uncertain. Deep stable markets will bring back confidence, facilitate the capital formation function of the markets and diminish the current dependence on the dark pool concept. At a minimum, the Commission must carefully scrutinize and empirically challenge the mantra that investors are best served by narrow spreads. In reality, narrow spreads of small order size may be an illusion that masks a very “thin crust” of liquidity (which leave markets vulnerable to another flash crash when markets fail their price discovery function only next time within the bounds of circuit breakers) and difficult-to-measure price impacts (that might be harmful to average investors and which diminish investor confidence), both of which the Commission must examine and possibly address.
As I wrote to you on August 21, 2009, the markets have changed dramatically in recent years. The Commission urgently needs to undertake (and complete) a comprehensive review of how these changes, both individually and in the aggregate, affect long-term investors. In the aftermath of the flash crash, this is an historic moment for the Commission, a moment when it must fulfill its obligation as steward for those investors who lack the clout of Wall Street’s largest financial players. I have proposed some problems and possible solutions that the Commission and its staff should consider; admittedly, there are no silver bullets or easy answers for complex markets.
Yet we can, and must, expect answers. The direction the Commission takes in its bid to fulfill its mission will say much about the type of country in which we live. As difficult as it might be, regulators must stand apart from the industries they regulate, listening and understanding industry’s point of view, but doing so at arm’s length, and with a clear conviction that on balance our capital markets exist for the greater good of all Americans. This is a test of whether the Commission is just a “regulator by consensus,” which only moves forward when it finds solutions favored by large constituencies on Wall Street, or if it indeed exists to serve a broader mission, and therefore will act decisively to ensure the markets perform their two primary functions of facilitating capital formation and serving the interests of long-term investors.
A consensus regulator may tinker here and there on the margins, adopt patches when the markets spring a leak, and reach for low-hanging fruit when Wall Street itself reaches a consensus about permissible changes. In these times, however, the Commission must be bold and move forward.
Please see the attached document where I have laid out some themes that elaborate on my views about the ongoing market structure review.
Sincerely,
Edward E. Kaufman
United States Senator
cc: The Honorable Kathleen L. Casey
The Honorable Elisse B. Walter
The Honorable Luis A. Aguilar
The Honorable Troy A. Paredes
*****
ATTACHMENT
POSSIBLE MARKET STRUCTURE SOLUTIONS


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