Conflict Minerals Challenge: DC Circuit Strikes Disclosure Provision and Upholds Rest of Rule | Practical Law

Conflict Minerals Challenge: DC Circuit Strikes Disclosure Provision and Upholds Rest of Rule | Practical Law

The US Court of Appeals for the District of Columbia Circuit held that a disclosure requirement of the conflict minerals rule and Section 1502 of the Dodd-Frank Act violates the First Amendment of the US Constitution. The Court otherwise rejected the challenge to the rule, upholding the remaining requirements.

Conflict Minerals Challenge: DC Circuit Strikes Disclosure Provision and Upholds Rest of Rule

by Practical Law Corporate & Securities
Published on 14 Apr 2014USA (National/Federal)
The US Court of Appeals for the District of Columbia Circuit held that a disclosure requirement of the conflict minerals rule and Section 1502 of the Dodd-Frank Act violates the First Amendment of the US Constitution. The Court otherwise rejected the challenge to the rule, upholding the remaining requirements.
On April 14, 2014, the US Court of Appeals for the District of Columbia Circuit issued its long-awaited opinion in National Association of Manufacturers v. U.S. Securities and Exchange Commission (No. 13–5252, (D.C. Cir. Apr. 14, 2014)). The action, brought by several business groups against the SEC, sought to strike down or modify the SEC's conflict minerals rule (Rule 13p-1 under the Exchange Act), and Section 1502 of the Dodd-Frank Act (codified as Section 13(p) of the Exchange Act), the statute that required the SEC to adopt the conflict minerals rule. These business groups appealed their action to the Court of Appeals after the conflict minerals rule and Section 13(p) were upheld in a July 2013 District Court ruling.
Section 13(p) and the conflict minerals rule are intended to reduce a significant source of funding for armed groups that are committing human rights abuses and contributing to conflict in the Democratic Republic of the Congo (DRC). To that end, they require reporting companies to conduct diligence and make disclosure about the source of certain minerals contained in their products.
The Court of Appeals held that the rule and statute violate the First Amendment of the US Constitution to the extent they require SEC reporting companies to make a specific statement set out in the rule in their SEC filings and on their websites. The rule would have required a company to make this statement (that its products containing the minerals have "not been found to be 'DRC conflict free'") if its diligence on the source of the minerals yielded certain results or, in some cases, was inconclusive. The court rejected all of the business groups' other arguments against the conflict minerals reporting regime, upholding the other provisions of the rule. These other arguments challenged the SEC's rulemaking under the Administrative Procedure Act (APA) and the Exchange Act as arbitrary and capricious on several grounds.
The Court of Appeals remanded the case to the District Court for further proceedings consistent with its holding.

Holding on the First Amendment Claim

Under certain circumstances, the conflict minerals rule may require a company to describe its products containing the minerals covered by the rule as "not been found to be 'DRC conflict free.'" The business groups argued that this requirement violates the First Amendment by unconstitutionally compelling speech.
The Court of Appeals found that:
  • Contrary to the SEC's position, rational basis review does not apply to the challenged disclosure because it is not simply factual and uncontroversial information. According to the court, a statement about whether a product is DRC "conflict free" is not clearly a factual, non-ideological statement. Minerals and products cannot themselves engage in conflict. Therefore, a statement about a mineral or product being "conflict free" is a metaphor. The metaphor conveys a moral judgment that the use of conflict minerals, the proceeds of which directly or indirectly flowed to armed groups, is tantamount to having some responsibility for atrocities carried out by those groups. A company might simultaneously disagree with the message this metaphor conveys and condemn the behavior of the armed groups. The court also distinguished conflict minerals disclosure from other disclosures under the securities laws. Unlike other required disclosures, conflict minerals disclosure is not intended primarily to prevent misleading speech or consumer deception, and the "conflict free" label is not being used by companies to sell securities.
  • The rule does not survive scrutiny under the intermediate standard of review set forth in Central Hudson Gas & Electric Corp. v. Public Service Commission (447 U.S. 557 (1980)). Among other things, the SEC did not present evidence that a less restrictive regulation would fail to achieve Section 13(p)'s goals. The court described possible alternative means to accomplish these goals, including allowing companies to use their own words to describe the status of their products. Because it concluded the rule could not survive intermediate scrutiny, the court declined to hold whether strict scrutiny was in fact the appropriate standard of review.
The court held that Section 13(p) and the conflict minerals rule violate the First Amendment to the extent they require companies to report to the SEC and state on their websites that any of their products have "not been found to be 'DRC conflict free.'" In a footnote, the court stated that if the requirement for companies to use the phrase "not been found to be 'DRC conflict free'" is the result of an SEC discretionary choice in the rulemaking process (as opposed to being mandated by Section 13(p)), then the statute may not itself be unconstitutional.

Rejection of Other Claims

The business groups also argued that the conflict minerals rule violates the APA and the Exchange Act for several reasons (for a summary of these arguments, see Practice Note, Conflict Minerals Rule Challenge: Litigation Tracker). The Court of Appeals held that the SEC:
  • Did not act arbitrarily and capriciously by choosing not to include a de minimis exception to the conflict minerals reporting requirement. Instead, the SEC acted reasonably when it decided including such an exception could thwart the goal of Section 13(p).
  • Acted within its delegated authority when it chose to require companies to conduct detailed due diligence even if, after a reasonable inquiry into the country of origin of their conflict minerals, they simply have reason to believe the minerals may have originated in the DRC. Disagreeing with the business groups' contention that the SEC acted arbitrarily in establishing this standard, the court noted the standard was designed to prevent companies from ignoring red flags in their initial country of origin inquiry.
  • Acted within its delegated authority when it chose to require reporting by companies that both manufacture products and merely contract to manufacture products. The court found that Section 13(p)'s ambiguous statutory language on the coverage of contract manufacturers indicates that Congress determined to leave the question to agency discretion.
  • Did not act arbitrarily when it set the temporary reporting phase-in period at two years for larger companies and four years for smaller companies. The court reasoned that the SEC could have reasonably concluded that because larger companies have more resources and greater market leverage over their supply chains, they can more quickly collect the information necessary for conflict minerals diligence.
  • Adequately analyzed the costs and benefits of the conflict minerals rule. The court held that the SEC was not required to conduct a rigorous, quantitative analysis of the humanitarian benefits of the rule. It also reasoned that it would not have been possible for the SEC to weigh these humanitarian benefits (for example, lives saved) against monetary costs to companies, as these two items are not comparable. The court also held that the SEC was not required to question the basic premise of Section 13(p), namely, that a disclosure regime would promote stability in the DRC. The court noted that Section 13(p) required the SEC rulemaking in any event.

Practical Implications

The Court of Appeals holding does not completely strike down the conflict minerals rule or Section 13(p) of the Exchange Act. The rule contains many other diligence and disclosure requirements apart from the requirement that the Court of Appeals found to be unconstitutional. While the holding remands the case for further proceedings in District Court, the Court of Appeals has not taken any action to stay the due date for the first filing under the conflict minerals rule (June 2, 2014) pending resolution of these proceedings.
In addition, on the same day it issued its opinion, the Court of Appeals issued an order instructing the clerk of the court to withhold issuance of the court's mandate until seven days after disposition of any timely petition for rehearing or rehearing en banc of the case (generally, the deadline for filing a petition for rehearing in the DC Circuit Court of Appeals is 45 days after entry of judgment). The mandate is the document that officially terminates the appeal and, when applicable, sends the case back to District Court for further proceedings.
As a practical matter, until the Court of Appeals issues its mandate, the District Court's July 2013 ruling upholding the conflict minerals rule and Section 13(p) of the Exchange Act in full remains in effect. The Court of Appeals' order specifically states that it is made without prejudice to the right of any party to move for expedited issuance of the mandate. It remains to be seen whether the SEC or the business groups will file a petition for rehearing of the case or, alternatively, move for expedited issuance of the mandate.
It remains to be seen whether the SEC will issue guidance on its expectations for conflict minerals reporting in light of the holding.
For more information on the conflict minerals rule, see Practice Note, Conflict Minerals Diligence.