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2021 | OriginalPaper | Chapter

The PRIIPs Regulation in View of Behavioural Research: An Example of Hyperbolized Mandated Disclosure

Author : Rainer Baisch

Published in: Consumer Law and Economics

Publisher: Springer International Publishing

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Abstract

Omri Ben-Shahar and Carl E. Schneider criticise the convenient policy option to enact mandated disclosure provisions to adequately inform consumers. They argue that this insufficiently challenges an all too common practice to overcome market failures caused by information asymmetry, deters lawmakers from adopting better regulations, impairs people’s decisions, and inappropriately burdens the legally obligated market participants. Their main argument is that consumers tend to make the “economically rational” decision to n o t read the information provided under the mandated disclosure requirements. This contribution describes not only the traditional disclosure-paradigm, which assumes that transparent and effectively processed information will enable the investor to make well-founded investment decisions, but also the human flaws regarding the way we process information. Based on the failures of mandated disclosure discussed by Ben-Shahar and Schneider, the European PRIIPs regulation, which tries to enhance consumer protection based on smarter information requirements to give consumers a better chance to avoid decision they later regret, is analysed. Then additional pillars capable of bolstering the investment decision process are discussed, i.e. organisational standards, code of conduct, suitability requirements, product governance in combination with the more paternalistic element of product intervention. Finally, an outlook to future challenges posed by the potential impact of FinTech developments like robo-advice and tokenised assets will be elucidated.

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Footnotes
1
Sunstein (2014), p. 729.
 
2
Ben-Shahar and Schneider (2011, 2014).
 
3
Ben-Shahar and Schneider (2014), p. 169. However, tangible proposals «better» tackling the information asymmetry problem are missing.
 
4
Baisch (2016a), p. 225; Dalley (2007).
 
5
Baisch and Weber (2015), p. 161.
 
6
Baisch (2016a), p. 219; Ulen (2013) delivers a good overview of behaviourally informed investor protection regulation and also advocates augmented disclosure obligations.
 
7
Schwarcz (2008), p. 1110.
 
8
Baisch (2016a), p. 225.
 
9
Opening statement of Steven Maijoor, Chair of ESMA, at the ESMA Investor Day, 12 December 2012, Paris; http://​www.​esma.​europa.​eu/​system/​files/​2012-_​818.​pdf.
 
10
Regulation (EU) No 1286/2014 of 26 November 2014 on key information documents for packaged retail and insurance-based investment products (PRIIPs), OJ L 352/1–23, 9.12.2014.
 
11
See also Moloney (2014), p. 821.
 
12
In the last 2 years this phenomenon, investor herd behavior, could be identified regarding Initial Coin Offerings; see Zetzsche et al. (2019), p. 30.
 
13
Davidoff and Hill (2013), p. 603.
 
14
Black (2013), p. 1507.
 
15
Securities Act of 1933, 15 U.S.C. § 77a to 77 mm.
 
16
Securities Exchange Act of 1934, 15 U.S.C. § 78a to 78 jj.
 
17
Schwarcz (2004), p. 7.
 
18
Paredes (2003), p. 484.
 
19
Avgouleas (2009), p. 442.
 
20
Directive (EC) 2003/71 of 4 November 2003 on the prospectus to be published when securities are offered to the public or admitted to trading and amending Directive 2001/34/EC, OJ L 345/64–89, 31.12.2003; Directive (EC) 2004/109 of 15 December 2004 on the harmonisation of transparency requirements in relation to information about issuers whose securities are admitted to trading on a regulated market and amending Directive 2001/34/EC, OJ L 390/38–57, 31.12.2004; Directive (EC) 2003/6 Directive 2003/6/EC of 28 January 2003 on insider dealing and market manipulation (market abuse), OJ L 96/16–25, 12.4.2003 (MAD); replaced by Regulation (EU) No 596/2014 of 16 April 2014 on market abuse (market abuse regulation) and repealing Directive 2003/6/EC and Directives 2003/124/EC, 2003/125/EC and 2004/72/EC, OJ L 173/1–61, 12.6.2014 (MAR); Directive (EC) 2004/39 Directive 2004/39/EC of 21 April 2004 on markets in financial instruments amending Council Directives 85/611/EEC and 93/6/EEC and Directive 2000/12/EC and Directive 93/22/EEC, OJ L 145/1–44, 30.4.2004, (MiFID I); replaced by Directive 2014/65/EU of 15 May 2014 on markets in financial instruments and amending Directive 2002/92/EC and Directive 2011/61/EU, OJ L 173/349–496, 12.6.2014 (MiFID II).
 
21
Markowitz (1952), Fama (1970, 1991, 1998).
 
22
Schwarcz (2008), p. 1121.
 
23
Schwarcz (2004), p. 36.
 
24
Avgouleas (2009), p. 474.
 
25
Dodd-Frank Act, 2010, 12 U.S. Code § 5511—Purpose, objectives, and functions; Title X of the Dodd-Frank Act (aka Consumer Financial Protection Act of 2010) created the Consumer Financial Protection Bureau as an independent agency within the Board of Governors of the Federal Reserve System to regulate the offering and provision of consumer financial products and services under federal consumer financial laws.
 
26
Dodd-Frank Act, 2010, 12 U.S. Code § 5532—Disclosures.
 
27
Based on fundamental ideas in the EU strategy to form a single market for financial services laid-out in the Financial Services Action Plan (FSAP) from 1999 and stated in the Commission Recommendation on disclosure of financial instruments aiming at “enhanced disclosure of the activities of banks and other financial institutions to allow investors to take informed decisions, and to foster market transparency and discipline as a complement to prudential supervision”. See Communication of the Commission, Financial Services: Implementing the Framework for Financial Markets: Action Plan, COM(1999) 232, 11.5.1999, 29.
 
28
The Economist, Irrationality: Rethinking Thinking, 16.12.1999; http://​www.​economist.​com/​node/​268946.
 
29
The Organisation for Economic Co-operation and Development (OECD). Roundtable of Economics for Consumer Policy: Summary Report, 26 July 2007, p. 13; http://​www.​oecd.​org/​internet/​consumer/​39015963.​pdf.
 
30
International Organization of Securities Commissions (IOSCO). Principles on Point of Sale Disclosure, Consultation Report, November 2009, p. 2; http://​www.​iosco.​org/​library/​pubdocs/​pdf/​IOSCOPD310.​pdf.
 
31
IOSCO, Principles on Point of Sale Disclosure, Final Report, February 2011, p. 11 and 31; http://​www.​iosco.​org/​library/​pubdocs/​pdf/​IOSCOPD343.​pdf.
 
32
Joint Forum (Basel Committee on Banking Supervision—BCBS, IOSCO und International Association of Insurance Supervisors—IAIS), Point of Sale Disclosure in the Insurance, Banking and Securities Sectors, April 2014; www.​iosco.​org/​library/​pubdocs/​pdf/​IOSCOPD439.​pdf.
 
33
G 20, High-level Principles on Financial Consumer Protection, October 2011; http://​www.​oecd.​org/​daf/​fin/​financial-markets/​48892010.​pdf.
 
34
Ben-Shahar and Schneider (2011), p. 712: “Most of the people in another study had at least some college education, but 40% ‘could not solve a basic probability problem or convert a percentage to a proportion’.” For details see Lipkus et al. (2001), p. 39.
 
35
Ben-Shahar and Schneider (2011), p. 657: “Financial literacy education is an important component of the disclosure and informed consent paradigm, and much evidence now shows that this effort has largely failed.” Willis (2008), pp. 208–209 finds that financial education programs have no effect or small paradoxical results. See also Lusardi and Mitchell (2014).
 
36
Baisch (2016a), p. 226. In daily living nearly nobody reads boilerplate information, see Ben-Shahar and Schneider (2011), p. 671. In this context fits also the “accumulation problem” (described by Ben-Shahar and Schneider (2011), pp. 689–690): the vast amount of en masse disclosures in every day live is too overwhelming so discloses “give up any inclination they may have had to devote their lives to disclosures”.
 
37
Baisch and Weber (2015).
 
38
Loewenstein G, Ubel P, Economics Behaving Badly, The New York Times, 14 July 2010, http://​www.​nytimes.​com/​2010/​07/​15/​opinion/​15loewenstein.​html.
 
39
Sunstein and Thaler 2003 and Camerer et al. (2003).
 
40
Bubb and Pildes (2014), p. 1598.
 
41
Sunstein (2013a), p. 56: Default rules “… identify the consequences if choosers do nothing. In part because of the power of inertia, default rules tend to stick.”
 
42
Sunstein (2013b), p. 1845.
 
43
Ben-Shahar and Schneider (2011), p. 665: “First, disclosers do not always provide, and disclosees do not always receive, information. Second, disclosees often do not read disclosed information, do not understand it when they read it, and do not use it even if they understand it. Third, mandated disclosure does not improve disclosees’ decisions.”
 
44
Bar-Gill (2015), p. 75.
 
45
Ben-Shahar and Schneider (2011), p. 657. At p. 659 it is truly stated that a “classic instance of mandated disclosure is the congeries of securities laws and regulations”.
 
46
See Ben-Shahar and Schneider (2011), p. 679, describing the situation of lawmakers.
 
47
Ben-Shahar and Schneider (2011), p. 681.
 
48
Ben-Shahar and Schneider (2011), p. 687.
 
49
Ben-Shahar and Schneider (2011), pp. 695–696.
 
50
Ben-Shahar and Schneider (2011), pp. 696–698.
 
51
Ben-Shahar and Schneider (2011), pp. 698–702.
 
52
Ben-Shahar and Schneider (2011), pp. 704–705.
 
53
Ben-Shahar and Schneider (2011), pp. 711–716.
 
54
Ben-Shahar and Schneider (2011), p. 728.
 
55
Ben-Shahar and Schneider (2011), p. 729.
 
56
Ben-Shahar and Schneider (2015), p. 84.
 
57
Ben-Shahar and Schneider (2015), p. 84.
 
58
Bar-Gill (2015), p. 76.
 
59
Marotta-Wurgler (2015), p. 63.
 
60
Ben-Shahar and Schneider (2015), p. 84.
 
61
Radin (2015), p. 53.
 
62
Busch (2016), pp. 235–237.
 
63
PRIIP: Packaged retail investment and insurance-based investment products; KID: Key Information Document. After a 1 year delay the PRIIPs regulation (Regulation (EU) 1286/2014 of 26 November 2014 on key information documents for packaged retail and insurance-based investment products [PRIIPs], OJ L 352/1-23, 9.12.2014) is into force since January 2018.
 
64
The regulation covers structured deposits, structured products, insurance products with an investment element (but not pension products) and funds.
 
65
See also continuative (in German) Baisch (2016b) and Dittschar (2018).
 
66
UCITS: Undertakings for Collective Investment in Transferable Securities; The original UCITS Directive 85/611/EEC was adopted in 1985 and is a regulatory framework of the European Commission that creates a harmonised regime throughout Europe for the management and sale of mutual funds. Directives 2001/107/EC and 2001/108/EC (UCITS III) broadened the investment spectrum of UCITS funds and relaxed restrictions for index funds. Now in force is UCITS IV (Directive 2009/65/EC, of 13 July 2009 on the coordination of laws, regulations and administrative provisions relating to undertakings for collective investment in transferable securities [UCITS] OJ L 302/32–96, 17.11.2009) amended by UCITS V (Directive 2014/91/EU, Directive 2014/91/EU of 23 July 2014 amending Directive 2009/65/EC as regards depositary functions, remuneration policies and sanctions, OJ L 257/186–213, 28.8.2014) which went into force in March 2016.
 
67
AIFMD: The Alternative Investment Fund Managers Directive: Directive 2011/61/EU of 8 June 2011 on Alternative Investment Fund Managers and amending Directives 2003/41/EC and 2009/65/EC and Regulations (EC) No 1060/2009 and (EU) No 1095/2010, OJ L 174/1–73, 1.7.2011.
 
68
Interestingly and confusingly enough, the calculation methodology as well as the presentation of risk, performance and cost is different; therefore, as of 1 January 2020, retail funds would have to provide simultaneously a UCITS-KIID and PRIIP-KID.
 
69
PRIIPs regulation, rectical (18): “A product should be regarded as not being simple and as being difficult to understand in particular if it invests in underlying assets in which retail investors do not commonly invest, if it uses a number of different mechanisms to calculate the final return of the investment, creating a greater risk of misunderstanding on the part of the retail investor or if the investment’s pay-off takes advantage of retail investor’s behavioural biases, such as a teaser rate followed by a much higher floating conditional rate, or an iterative formula.”
 
70
MiFID: Markets in Financial Instruments Directive; MiFIR: Markets in Financial Instruments Regulation.
 
71
According to Art. 24 (4) (b) MiFID II the information to be provided to client shall include guidance on and warnings of the risks associated with investments in financial instruments or in respect of particular investment strategies.
 
72
London Economics, Consumer Testing Study of the Possible New Format and Content for Retail Disclosures of Packaged Retail and Insurance-based Investment Products, MARKT/2014/060/G for the Implementation of the Framework, Final Report, 2015; https://​ec.​europa.​eu/​info/​sites/​info/​files/​consumer-testing-study-2015_​en.​pdf.
 
73
London Economics 2015, p. xiv.
 
74
ESAs (European Supervisory Authorities): European Banking Authority (EBA), European Insurance and Occupational Pensions Authority (EIOPA), and European Securities and Markets Authority (ESMA).
 
76
Discussion Paper of the Joint Committee of European Supervisory Authorities (JC ESAs), Key Information Documents for Packaged Retail and Insurance-based Investment Products (PRIIPs), 17 November 2014 (JC/DP/2014/02); https://​eba.​europa.​eu/​documents/​10180/​899036/​JC+DP+2014+02+-+PRIIPS+Discussi​on+Paper.​pdf.
 
77
JC-ESAs, Technical Discussion Paper, Risk, Performance Scenarios and Cost Disclosures in Key Information Documents for Packaged Retail and Insurance-based Investment Products (PRIIPs), 23 June 2015 (JC DP 2015 01); https://​esas-joint-committee.​europa.​eu/​Publications/​Consultations/​JC DP 2015 01.​pdf.
 
78
JC-ESAs, Joint Consultation Paper, PRIIPs Key Information Documents, Draft regulatory technical standards with regard to presentation, content, review and provision of the key information document, including the methodologies underpinning the risk, reward and costs information in accordance with Regulation (EU) 1286/2014 of the European Parliament and of the Council, 11 November 2015 (JC 2015 073); https://​www.​eba.​europa.​eu/​documents/​10180/​1268855/​JC+2015+073+CP+P​RIIPs+Key+Inform​ation+Documents.​pdf.
 
79
Final draft regulatory technical standards with regard to presentation, content, review and provision of the key information document, including the methodologies underpinning the risk, reward and costs information in accordance with Regulation (EU) No 1286/2014 of the European Parliament and of the Council, 31 March 2016 (JC 2016 21); https://​www.​esma.​europa.​eu/​sites/​default/​files/​library/​jc_​2016_​21_​final_​draft_​rts_​priips_​kid_​report.​pdf.
 
80
Commission Delegated Regulation 2017/653 of 8 March 2017 supplementing Regulation (EU) No 1286/2014 on key information documents for packaged retail and insurance-based investment products (PRIIPs) by laying down regulatory technical standards with regard to the presentation, content, review and revision of key information documents and the conditions for fulfilling the requirement to provide such documents (C/2017/1473), OJ L 100/1-52, 12.4.2017.
 
81
ESA-DP (fn. 76), pp. 17–18; with reference to Sunstein (2011).
 
82
European Commission, Green Paper on retail financial services: Better products, more choice, and greater opportunities for consumers and businesses, Brussels, 10.12.2015 COM(2015) 630 final; https://​ec.​europa.​eu/​transparency/​regdoc/​rep/​1/​2015/​EN/​1-2015-630-EN-F1-1.​PDF.
 
83
Sousa Lourenço et al. (2016), p. 12: in the field of financial services behavioural insights “had often been used by providers in their sales strategies (e.g. using framing to emphasise certain features of products), but are now also being used by regulators to improve financial consumer protection (e.g. simplification and standardisation of product information to reduce the negative impact of framing and decrease information overload)”.
 
84
Sunstein (2016), p. 243: “In the context of consumer financial products, various forms of manipulation are a widespread problem.” See also Bar-Gill (2012) and Akerlof and Shiller (2015).
 
85
Gentile et al. (2015), p. 10.
 
86
EIOPA (2013) Good practices on information provision for DC schemes - Enabling occupational DC scheme members to plan for retirement, 24 January 2013 (EIOPA_BoS_13/010), p. 8.; https://​eiopa.​europa.​eu/​publications/​reports/​report_​good_​practices_​info_​for_​dc_​schemes.​pdf.
 
87
VaR measures the risk of loss for investments by estimating how much an investment might lose (e.g. at given probability level of 97.5%) under normal market conditions in a often relatively short time period.
 
88
The calculated transaction costs include the bid-offer spread and commission costs, but the actual settlement may be closed at price on the advantageous end of the spread, resulting in negative costs.
 
89
Sunstein (2014), p. 727.
 
90
See Article 33 of the level 2 MiFID-ID (MiFID Implementing Directive, Commission Directive 2006/73/EC of 10 August 2006 implementing Directive 2004/39/EC of the European Parliament and of the Council as regards organisational requirements and operating conditions for investment firms and defined terms for the purposes of that Directive, 2.9.2006, OJ L 241/26–58) regarding the obligation to inform clients about costs.
 
91
Sunstein (2014), p. 728.
 
92
Sunstein (2014), p. 729.
 
93
Walther (2015), p. 145.
 
94
Campbell et al. (2011), p. 95.
 
95
European Supervisory Authorities (ESAs), Joint Consultation Paper concerning amendments to the PRIIPs KID, Draft amendments to Commission Delegated Regulation (EU) 2017/653 of 8 March 2017 on key information documents (KID) for packaged retail and insurance-based investment products (PRIIPs), 8 November 2018 (JC 2018 60); https://​eiopa.​europa.​eu/​Publications/​Consultations/​Joint%20​Consultation%20​Paper%20​on%20​targeted%20​amendments.​pdf.
 
96
Heading above the table: Simulated future performance, Market developments in the future cannot be accurately predicted. These scenarios are only an indication of the range of possible returns.
 
97
See De Goeij et al. (2014) and Cox et al. (2018).
 
98
JC-ESAs, Final Report following joint consultation paper concerning amendments to the PRIIPs KID, 8. Februar 2019; https://​www.​esma.​europa.​eu/​press-news/​esma-news/​esas-publish-recommendations-changes-priips-key-information-document.
 
101
See Schwarcz (2016), p. 1462 discussing “supplemental protections”.
 
102
Baisch and Weber (2015), p. 161 and pp. 171–172.
 
103
Art. 24 MiFID II.
 
104
While suitability contains a link to present as well as future aspects, appropriateness mainly reflects the past. These tests are realising the general obligation to act fairly, honestly and professionally and in accordance with the best interests of the client—previously known as fiduciary duty.
 
105
IOSCO, Suitability Requirements With Respect To the Distribution of Complex Financial Products Final Report, January 2013, Principle 5.
 
106
Baisch and Weber (2015), pp. 172–174 and pp. 182–187.
 
107
According to Rapp (1998), p. 212, “the most common characterization offered is that suitability is an amorphous concept, with no accepted definition, and bereft of case law guidance”.
 
108
See Burn (2010), p. 167: “… it must be understood that short-form disclosure can never contain sufficient information to enable investors to take an investment decision. Such decisions require fulsome disclosure”.
 
109
Brenncke (2018), p. 862.
 
110
Brenncke (2018), p. 863.
 
111
See regarding the FinTech regulatory challenges Weber and Baisch (2018).
 
112
See OECD (2017).
 
113
ETFs are funds which are similar to mutual funds but trade like stocks; an ETF tracks a stock index, commodities, bonds or a basket of assets.
 
114
Based on Fama (1970), Sharpe (1964), Tobin (1958) and Markowitz (1952).
 
115
See for details Grill et al. (2018).
 
116
For a good analysis see Betterfinance, Robo-Advice: European Individual Investors take a Look under the Hood, June 2018; https://​betterfinance.​eu/​wp-content/​uploads/​Robo_​Advice_​Report_​2018_​-_​for_​website.​pdf.
 
118
See ESMA (2017).
 
119
Baisch (2016a), p. 223; there are important challenges regarding the best way to implement nudges, they are part of the regulatory toolkit but not a panacea.
 
120
Baisch (2016a), p. 223.
 
121
The ESMA adopted product intervention measures on the provision of contracts for differences (CFDs) and binary options to retail investors; https://​www.​esma.​europa.​eu/​press-news/​esma-news/​esma-adopts-final-product-intervention-measures-cfds-and-binary-options.
 
122
The ESMA alerted investors of the high risk of losing all of their invested capital as ICOs are very risky and highly speculative investments; https://​www.​esma.​europa.​eu/​press-news/​esma-news/​esma-highlights-ico-risks-investors-and-firms.
 
123
Ulen (2014), 120: “Law – by taking due account of these predictable, routine deviations from rationality – can better influence behavior to realize both social goals and to help individuals better enhance their well-being.”; see also Mitchell (2014), pp. 182–184, regarding the interaction of behavioural law and economics with legal norms.
 
124
Campbell et al. (2011), p. 95.
 
125
See Loewenstein et al. (2014), p. 414; the industry response to disclosure laws may have additional effects: e.g. forcing a fast-food restaurant to post calorie information may have little effect on consumer purchases but it may nonetheless spur the chain to begin offering healthier alternatives because the issue becomes more salient to them. Forcing the financial industry to post risks and cost might have a similar resonance.
 
126
Loewenstein et al. (2014), p. 396.
 
127
Coffee (1984), p. 751.
 
128
Chater et al. (2010), pp. 19–20.
 
129
See Oehler and Wendt (2017).
 
130
Sunstein (2014), p. 727, “A central point is that disclosure policies should be based on an understanding of how people actually process information. On this count, behavioral findings are essential.”
 
131
Gigerenzer (2014), proposes that with the teaching of critical thinking about statistical probability and heuristics individuals can get more risk savvy. See also Kahneman (2011, 2013).
 
132
Moloney (2012), p. 177.
 
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Metadata
Title
The PRIIPs Regulation in View of Behavioural Research: An Example of Hyperbolized Mandated Disclosure
Author
Rainer Baisch
Copyright Year
2021
DOI
https://doi.org/10.1007/978-3-030-49028-7_3