The D & O Diary : Directors and Officers Liability and Insurance : The D & O Diary : Kevin LaCroix : Securities Laws, Corporate Fraud, D & O Litigation

Whistleblower information may be one of the SEC’s “most effective weapons in its new enforcement arsenal,” but the agency’s whistleblower program “faces challenges on many fronts,” according to an April 23, 2013 New York Times Dealbook article entitled “Hazy Future for Thriving S.E.C. Whistle-Blower Effort” (here). As evidence of the whistleblower program’s promise that article cites several “previously undisclosed” enforcement actions that whistleblower information have triggered or aided. Yet due to several potential obstacles and impediments, the future of the program may, according to one source cited in the article “hang in the balance right now.”

For its part, the agency says that it has “ramped up” its staffing and the program has “gained momentum.” As evidence of the value the program has already delivered, the article cites the agency’s investigation of Knight Capital. The SEC was already investigating problems the trading company was having following the company’s bungled installation of new trading software. The investigation had been narrow until a whistleblower came forward and “the agency was able to shift gears and expand the investigation.”

According to the article, with the help of a whistleblower, the agency’s investigation of the Oppenheimer’s investment firm’s alleged overstatement of the performance of a private equity fund resulted in a fine of nearly $3 million.

The article also details an enforcement action that resulted in the first whistleblower bounty payment under the Dodd Frank Act’s whistleblower provisions. According to the article, Dee Stone, an outside consultant to China Voice Holding Corp, received a whistleblower bounty of $46,000 (so far) for providing documents showing that the company was operating a Ponzi scheme. (Refer here for more about this award, which was the first and is so far the only award under the Dodd-Frank whistleblower bounty program). The identity of the whistleblower and the subject of her whistleblower report had not previously been disclosed.

But though the program has had its successes, the SEC has also encountered obstacles from companies. Some companies have “drafted policies compelling their staffs to report fraud internally,” while other companies require employees to “attest annually that they never witnessed any fraud, a certification that could be used to discredit employees who later blew the whistle.”

The article also notes that companies have been accused of retaliating against whistleblowers. The article cites the September 2012 complaint that James Nordgaard filed in the Southern District of New York against his employer, Paradigm Capital Management and related entities, as well as against its founder and President, in which Nordgaard alleged that his employer retaliated against him after he notified the employer that he had reported what he believed to be illegal activities to the SEC.

In his complaint, a copy of which can be found here, Nordgaard sought to recover damages for retaliation under the Dodd-Frank Act. Nordgaard alleged that after he made his report, he was stripped of trading duties and “constructively terminated.” Initially, the company sought to have the dispute submitted to arbitration. In December 2012, Nordgaard voluntarily withdrew his complaint.

Discussion

Even though the article highlights the successes that the whistleblower program has already produced, the article nevertheless also suggests that company efforts may undermine the program or limits its usefulness. It may be true that some companies may succeed in diverting would be whistleblowers to internal programs, but even that could still be useful as long as the whistleblower’s reports are not swept under the rug but are dealt with.

And while company retaliation could well deter whistleblowing, the specific example of company retaliation that the article notes suggests that retaliation could be as big of a problem for the retaliating company than for the employee, given the retaliation protection available to whistleblowers under the Dodd-Frank Act.

The fact is that during the first full fiscal year of the whistleblower’s operation, the SEC received 3,001 whistleblower reports (as discussed in the agency’s 2012 annual whistleblower report, a copy of which can be found here). And while that number may be, as an unnamed source in the article suggests, “somewhat exaggerated,” it is clear that the SEC is receiving a very substantial number of whistleblower reports – and that is despite the deterrent efforts of some companies noted in the article.

The agency has at this point made only a single whistleblower bounty award. As the agency makes further awards and as those awards attract publicity, would-be whistleblowers will likely be even further motivated to come forward. As a plaintiffs’ law firm noted in a press release earlier this week, whistleblower awards provide “a reason for taking a risk.” (And it should not be overlooked that the plaintiffs’ bar clearly sees the development of a whistleblower practice as a growth opportunity. The efforts of the plaintiffs’ bar may not by itself be sufficient to cancel out the efforts of companies to try to deter whistleblowers but it does at a minimum represent a countervailing force.)

My take is that though companies may be taking steps to avert whistleblower problems, the whistleblower program ultimately will prove, as the article suggests, to be “one of the most effective weapons in the new enforcement arsenal.”

As I have said previously on this blog, if 2012 was the year in which the Dodd-Frank whistleblower program finally got off the ground, 2013 will likely be the year when the program picks up serious momentum. It seems likely  that – notwithstanding the impediments noted in the Times article -- we will not only see increased enforcement activity as a result of whistleblowers’ tips, but that we will see increased numbers of whistleblowers’ bounty awards, as well as the possibility of increased private civil litigation following in the wake of the enforcement actions.

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Even thought the SEC’s final regulations for the Dodd-Frank whistleblower program just became effective on August 12, 2011, the agency has already filed its first report on the whistleblower program. Under Section 924(d) of the Dodd Frank Act, the SEC must report annually to Congress on its activities, whistleblower complaints and the agency’s response to the complaints. Because the agency’s November 2011 report is written as of the September 30, 2011 end of the fiscal year, it covers only seven weeks of whistleblower data for fiscal year 2011. The Report can be found here.

The report shows that during the first seven weeks of the program, the agency received 334 whistleblower tips. The SEC itself cautions that “due to the relatively recent launch of the program and the small sample size, it is too early to identify any specific trends or conclusions from the data collected to date.” Nevertheless, even though it is early yet, there are some interesting tidbits in the report’s data.

First, a surprising number of the reports originated outside the United States. That is, not only did the agency receive individual whistleblower submissions from individuals in 37 different states, but it also received reports from individuals in eleven different foreign countries. These non-U.S. whistleblowers 32 submissions represented roughly ten percent of all of the whistleblower submissions during the reporting period. The country with the highest number of submissions was China (10), followed by the U.K. (9).

Second, though many commentators had expected that the Dodd Frank whistleblower provisions would trigger a flood of FCPA-related reports, and though there were so many reports from outside the U.S., whistleblower submissions reporting FCPA violations represented only four percent of the submissions during the reporting period, a level of submissions that has puzzled some commentators (refer for example here).

When the Dodd-Frank Act was first enacted, there was a great deal of concern that the bounty rewards in the whistleblower provisions would trigger a flood of whistleblower reports. (The bounty provisions require an award of between 10% and 30% of the amount of SEC recoveries based on the whistleblower submissions, when the SEC’s recovery exceeds $1 million). Some might find the 334 of whistleblower submissions during the reporting period surprisingly low.

But in addition to the reporting period only representing seven weeks, it is also worth noting that there still have been as yet no bounty awards under the Dodd-Frank whistleblower program. The SEC’s recent report shows that the agency maintains a fund of over $452 million in order to fund future whistleblower awards.

A former SEC official who helped draft the whistleblower provisions has said that he expects that in coming years “the SEC will exceed its previous records in both number of actions brought and the amount of sanctions collected as a result of whistleblower assistance.”

The $452 million fund available for bounty awards suggests that we will indeed see significant numbers of whistleblower submissions in the future. Based on the history of other government whistleblower programs that offer steep financial motivations, the expectation that there will be significant numbers of whistleblower report in the future seems well founded. For example, an entire industry has grown up in support of qui tam actions under the False Claims Act, with serial claimants and specialized law firms organized to pursue these claims systematically. David Barrio has a very interesting November 17, 2011 in the AmLaw Litigation Daily article (here) discussing the serial qui tam claimant and his “industrious” law firm that has over a 16-year period recovered over $2.5 billion from pharmaceutical companies accused of ripping off Medicare and Medicaid. 

And while the SEC’s first report since the whistleblower program covers only a short time period and reflects only a small number of whistleblower submissions, among those submissions are some significant items. As discussed in Jean Eaglesham’s November 16, 2011 Wall Street Journal article (here), among the reports the SEC received during the initial reporting period were tips that the Bank of New York Mellon and State Street Corp. were improperly charging large institutional clients for currency trades.

These examples show the potential significance of the whistleblower program. As these types of whistleblower reports translate into bounty awards, more submissions will follow. The SEC’s initial report for the short reporting period provides a cryptic but tantalizing glimpse of the likely future of this program.

EEOC Releases 2011 Report: And speaking of annual government reports, the Equal Employment Opportunity Commission has also released its fiscal 2011 Performance and Accountability Report. The EEOC’s report, which can be found here, contains a detailed overview of the agency itself. The report also contains some data relating to the agency’s enforcement activities.

Among other things, the agency’s report shows that in fiscal 2011, the agency received a record number of charges during fiscal 2011. The 99,947 charges the agency received during 2011 slightly exceeded the 99,922 charges the agency received in 2010. This relatively slight annual gain in the number of charges between 2010 and 2011 contrasts with the steep increase in the number of charges between FY 2004 and FY 2009, when the annual increases in the number of charges ranged from 12 to 38 percent. This rapid ramp up of the number of charges has produced increased what the report describes as the agency’s “inventory.” The report details the steps the agency is taking to try to reduce its accumulated inventory.

Cases Against U.S-Listed Chinese Companies Continues to Accumulate: As I have previously noted elsewhere, one of the significant factory in securities class action litigation filing activity during the past 18 months has been the flood of new cases involving U.S.-listed Chinese companies. One of the frequent comments about this surge of filings has been that sooner or later this phenomenon has to play itself out, since sooner or later the plaintiffs’ lawyers will just run out of companies to sue.

But while this filing phenomenon has to come to an end sooner or later, the lawsuits involving U.S. listed Chinese companies are still continuing to come in. In their November 16, 2011 press release (here), plaintiffs’ attorneys’ announced that they had filed an action in the Central District of California against Keyuan Petrochemicals and certain of its directors and officers. In their complaint, which can be found here, the plaintiffs allege that the company failed to disclose certain related party transactions and that the company’s financial statement did not reflect the company’s true financial condition.

With the filing of this complaint, there have now been a total of 36 securities class action lawsuits in 2011 involving U.S. listed Chinese companies, and a total of 47 since January 1, 2010.

Viral Video Explained: Earlier this week I included an embedded link to a bizarre video showing a group of elderly Chinese singing and dancing to the Lady Gaga song “Bad Romance.” A November 17, 2011 post on The New Yorker’s website (here) has an interesting explanation of the video, which apparently has gone viral, much to the puzzlement of the Chinese. The New Yorker post includes the video, for those who have not yet seen it.

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Among the many innovations introduced in the massive Dodd-Frank Wall Street Reform and Consumer Protection Act enacted this past July are the new whistleblower provisions, designed to encourage employees and others to report securities law violations to the SEC. The bounty award provided for in the whistleblower provisions seem likely to encourage fraud reporting, but many observers are voicing concerns about these provisions. And as noted below, there may be other concerns above and beyond those generally noted, particularly with respect to potential D&O insurance coverage issues.

Section 922 of the Dodd Frank Act specifies that a person who provides "original information" to the SEC of fraud within the company that leads to an enforcement penalty of $1 million or more may be entitled to collect between 10 and 30 percent of the penalties of $1 million or more. The provision also provides substantial retaliation protections for whistleblowers.

An article in the November 1, 2010 Wall Street Journal article (here) notes a number of concerns about the new whistleblower provisions, the first and foremost of which is that the bounty provisions provide incentives for prospective whistleblowers to race to the SEC in order to be the first to report violations, which in turn encourages prospective whistleblowers to bypass internal fraud detection mechanisms mandated by the Sarbanes Oxley act. Bruce Carton previously discussed many of these same concerns on his Securities Docket blog, here.

There is little doubt that the bounty provisions are likely to encourage fraud reporting. As I have noted elsewhere, penalty awards, for example, have skyrocketed in recent years, with many recent awards in the hundreds of million dollars. Whistleblowers potential rewards are enormous.

To put this into perspective, and as noted in the Journal article, the whistleblower whose tip resulted in the recently announced $750 million settlement between GlaxoSmithKline and the Justice Department stands to get an award of $96 million, under similar whistleblower provisions in the False Claims Act.

In recognition of the likelihood of substantial whistleblower awards, the SEC has already established a fund of approximately $452 million to fund the payments to whistleblowers, according to the SEC’s Annual Report to Congress on the Whistleblower Program, which was released last week. (The congressional report was mandated by the Dodd Frank Act.)

Under these circumstances, it seems highly likely that whistleblower actions will proliferate, and so the concerns noted in the Journal article and elsewhere seem warranted. In addition to the items noted elsewhere, there are a couple of other issues arising from the new whistleblower provisions that are worth considering as well.

The first is that the threat of legal proceedings from the whistleblower action is not limited just to the possible SEC enforcement action. A related and accompanying threat is the possibility of a follow-on civil litigation, brought on behalf of the target company’s investors, in which the plaintiffs will claim that the company’s senior managers failed to take appropriate steps to ensure that proper controls were in place, or that investors were misled by the company’s statement about the company’s controls.

These kinds of follow-on civil actions have been a frequent accompaniment of FCPA enforcement actions, as I have often noted on this blog. It seems probable that as whistleblower actions mount in response to the Dodd-Frank Act provisions, that there will be a parallel increase in civil actions following on after the whistleblower enforcement action.

The fines and penalties associated with a whistleblower enforcement action would likely not be covered under a D&O insurance policy, although the fees incurred in defending against the action potentially could be covered, at least as to individual defendants.

The follow-on civil actions would likely be covered under the typical D&O insurance policy, subject to all of the applicable policy terms and conditions. However, one potential D&O insurance coverage issue that might arise concerning the follow-on civil actions has to do with the possibility that the individual whistleblower could be an insured person under the D&O policy. This might arise, for example, if the whistleblower is also an officer of the company. The risk is that either the enforcement action or the follow on civil proceeding might run afoul of the insured v. insured exclusion typically found in most D&O insurance policies.

Following the enactment of the Sarbanes Oxley whistleblower provisions a few years ago, many D&O insurance policies were amended to ensure that a claim related to a Sarbanes-Oxley whistleblower action would not run afoul of the insured v. insured exclusion. Many of these amendments were written sufficiently broadly that the coverage carve back for whistleblower claims would preserve coverage not only for Sarbanes-Oxley whistleblower claims, but would also preserve coverage under other types of whistleblower claims. Many of these amendments were written sufficiently broadly that they would likely preserve coverage for Dodd-Frank whistleblower claims as well.

However, not all of the whistleblower carve back amendments are equally broad, which may raise the question about the potential applicability of the insured v. insured exclusion to Dodd Frank whistleblower claims, whether with respect to the initial enforcement action or even the possible follow-on civil action. Given the high likelihood of future Dodd Frank whistleblower claims, the review of the applicable D&O insurance policy language, seems like a critical next step.

In any event, the range of possibilities seems to include the likelihood of an increase both in enforcement actions and follow-on civil lawsuits, which has important implications far beyond the narrow provisions of the policy’s exclusionary provisions.

More Securities Suits Against For-Profit Educational Companies: One of the most distinctive securities class action lawsuit filing trends in the second half of 2010 has been the sudden arrival of a multitude of securities suits against for-profit education companies. As I noted in an earlier post, these suits follow a congressional investigation in to the companies’ practices involving student loans.

In recent days, plaintiffs have added two more companies to the growing list of for-profit education companies that have been hit with securities lawsuits. First, on October 28, 2010, plaintiffs’ lawyers initiated a securities suit against The Washington Post Company and certain of its directors and offices, in connection with the companies Kaplan, Inc. education subsidiary. Second, on November 1, 2010, plaintiffs’ lawyers initiated a securities suit against DeVry, Inc. another for-profit education company.

These two latest suits brings the number of securities suits filed against for-profit education companies so far this year to nine, which represents about 6% of the approximately 145 securities lawsuit filed this year.

Though the Washington Post Company is obviously a media company, it actually carries the 8200 SIC Code (Educational Services), reflecting the relative importance of the Kaplan Inc. subsidiary’s revenues to the company’s overall financial picture.

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