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Cb(1)2497/01-02 Contents Page EXECUTIVE SUMMARY … … ..... … … … … … … … … … … … … … … … … .. I INTRODUCTION … … … … … … … … … … … … … … … … … … … … . … … … .. I MAJOR FINDINGS … … … … … … … … … … … … … … … … … … … … … … … II CONCLUSIONS … … … … … … … … … … … … … … … … … … … … … … … … . III RECOMMENDATIONS … … … … … … … … … … … … … … … … … … … … … ... V Engaging the Market and the Public.............................................................. V Assessing Market Reaction … … … … … … … … … … … … … … … … … .. VI Improving the Consultation Process … … … … … … … … … … … … … … VI Reviewing the Three-tiered Regulatory Structure … … … … … … … … ... VII Strengthening Investor Education and Protection … … … … … … … … … VIII OTHER RECOMMENDATIONS … … … . … … … … … … … … … … … … . … … … . VIII FINAL REMARKS … … … … … … .. … … … … … … … … … … … … … … … … … VIII CHAPTER 1 INTRODUCTION … … … … … … … … … … … … … … … … … … … 1 THE PENNY STOCKS INCIDENT … … … … … … … … … … … … … … … … … … 1 APPOINTMENT OF THE PANEL … … … … … … … … … … … … … … … … … … . 2 SCOPE OF THE INQUIRY … … … … … … … … … … … … … … … … … . … … … . 3 MODUS OPERANDI … … … … … … … … … … … … … … … … … … … … … … . 4 STRUCTURE OF THE REPORT … … … … … … … … … … … … … … … … … … .. 5 CHAPTER 2 OVERVIEW OF THE HONG KONG STOCK MARKET … … … … … 6 INTRODUCTION … … … … … … … … … … … … … … … … … … … … … … … .. 6 OVERVIEW OF THE HONG KONG MARKET … … … … … … … … … … . … … … . 6 PENNY STOCKS OR MICRO CAPS … … … … … … … … … … … … … … … … … 7 KEY STAKEHOLDERS IN THE SECURITIES INDUSTRY … … … … … … … … … ... 10 Interested Parties … … … … … … … … … … … … … … … … … … … … … .. 10 Investors … … … … … … … … … … … … … … … … … … … … … … … … … 10 - 1 - Page Securities Intermediaries … … … … … … … … … … … … … … … … … … .. 11 Credit Providers … … … … … … … … … … … … … … … … … … … … … … 11 OBSERVATION … … … … … … … … … … … … … … … … … … … … … … … … . 11 CHAPTER 3 THE THREE-TIERED REGULATORY FRAMEWORK FOR THE SECURITIES AND FUTURES INDUSTRY … … … … … … … … … … 13 INTRODUCTION … … … … … … … … … … … … … … … … … … … … ... … … … 13 THE THREE-TIERED REGULATORY FRAMEWORK … … … … … … … … … … … 13 Origin of the Three-tiered Structure … … … … … … … … … … . … … … … 13 The First Tier – The Government … … … … … … … … … … … … … … … 14 The Second Tier – The SFC … … … … … … … … … … … … … . … … … … 19 The Third Tier – The HKEx … … … … … … … … … … … … … . … … … … 21 REVIEW AND REFINEMENT … … … … … … … … … … … … … … … … … … … . 23 CHAPTER 4 ORGANIZATION, COMMUNICATION AND CONSULTATION CHANNELS … … … … … … … … … … … … ........................ … … .. 24 INTRODUCTION … … … … … … … … … … … … … … … … … . … … … … … … .. 24 RELEVANT PARTIES … … … … … … … … … … … … … … … … … … … … … … 24 The First Tier – The Government … … … … … … … … … … … … … … … 24 The Second Tier – The SFC … … … … … … … … … … … … … … … … … 25 The Third Tier – The HKEx … … … … … … … … … … … … … … … … … 25 Segregation of HKEx’s Business and Regulatory Functions … … … … .. 26 The Listing Committee … … … … … … … … … … … … … … … … … … … 27 CO-ORDINATION WITHIN AND AMONGST DIFFERENT PARTIES … … … … … … 28 Within the First Tier – The Government … … … … … … … … … … … … .. 28 Within the Second Tier – The SFC … … … … … … … … … … … … … … .. 28 Within the Third Tier – The HKEx … … … … … … … … … … … … … … . 28 Between the First and Other Tiers … … … … … … … … … … … … … … … 29 - 2 - Page Between the Second and Third Tiers … … … … … … … … … . … … … … .. 30 CONSULTATION AND MARKET ASSESSMENT … … … … … … … … … … … … .. 30 The Government … … … … … … … … … … … … … … … … … … … … … .. 30 The SFC … … … … … … … … … … … … … … … … … … … … … … … … .. 30 The HKEx … … … … … … … … … … … … … … … … … … … … … … … … 32 CHAPTER 5 PROCEDURES FOR THE PREPARATION AND RELEASE OF LISTING RULES AND AMENDMENT THERETO BY THE HKEX.... 34 INTRODUCTION … … … … … … … … … … … … … … … … … … … … … … … .. 34 LISTING … … … … … … … … … … … … … … … … … … … … … … … … … … . 34 AUTHORITY FOR MAKING OR AMENDING LISTING RULES … … … … … … … . 34 Transfer of Authority from the SFC to the Exchange and from the HKEx Board to the Listing Committee … … … … … … … … … … … … … 34 PROCEDURES FOR AMENDMENT TO THE LISTING RULES … … … … … … … … 35 Four Stages … … … … … … … … … … … … … … … … … … … … … … … .. 35 Initiation … … … … … … … … … … … … … … … … … … … … … … … … .. 36 Preparation and Release of Consultation Papers … … … … … … … … … . 37 Market Consultation … … … … … … … … … … … … … … … … … … … … 40 Approval … … … … … … … … … … … … … … … … … … … … … … … … .. 41 OBSERVATIONS … … … … … … … … … … … … … … … … … … … … … … … ... 42 No Pre-consultation Sounding Exercise by the HKEx … … … … … … … 42 Involvement of the Listing Committee. … … … … … … … … … … … … .. 43 Role of the SFC … … … … … … … … … … … … … … … … … … … … … … 44 CHAPTER 6 THE ACCOUNTABILITY SYSTEM AND ITS IMPLICATIONS … … … … … … … … … … … … . … … … … … … … 46 INTRODUCTION … … … … … … … … … … … … … … … … … … … … … … … .. 46 ACCOUNTABILITY SYSTEM … … … … … … … … … … … … … … … … … … … . 46 - 3 - Page ROLE OF THE FINANCIAL SECRETARY … … … … … … … … … … … … … … . … 46 ROLE OF THE SECRETARY FOR FINANCIAL SERVICES AND THE 47 TREASURY........ IMPLICATIONS OF THE ACCOUNTABILITY SYSTEM ON THE THREE-TIERED REGULATORY FRAMEWORK … … … … … … … … … … … … … … … … … … 48 Statutory Powers and Functions of the FS and the Secretary … … … … .. 48 Responsibility over Executive Departments … … … … … … … … … … … 49 OBSERVATION … … … … … … … … … … … … … … … … … … … … … … … … 50 CHAPTER 7 PREPARATION OF THE CONSULTATION PAPER … … … … … … … 51 INTRODUCTION … … … … … … … … … … … … … … … … … … … … … … … .. 51 IDENTIFYING PENNY STOCKS AS A PROBLEM … … … … … … … … … … … … .. 51 FORMULATING THE PROPOSALS … … … … … … … … … … … … … … … … … .. 52 The Proposal in its Embryonic Form … … … … … … … … … … … … … … 52 Subsequent Evolution … … … … … … … … … … .. … … … … … … … … … .. 53 The Main Communications....................................................................... 53 How The Matter Developed … … … … … … … … . … … … … … … … … 55 EXCHANGES BETWEEN THE HKEX AND THE SFC … … … … … … … … … … . 56 Key Exchanges … … … … … … … … … … … … … … … … … … … … … … 56 First Draft Paper on Share Consolidation … … … … … … … … … … … ... 58 The SFC’s Comments on First Draft Paper on Share Consolidation … … … … … … … … … … … … … … … … … … … … … .. 59 Second Draft Paper on Share Consolidation … … … … … … … … … … … 60 The SFC’s Comments on the Second Draft Paper on Share Consolidation … … … … … … … … … … … … … … … … … … … … … .. 61 First Draft of the Consultation Paper on Admission Eligibility Criteria and Continuing Eligibility Criteria … … … … … … … … … … … … … . 62 Second Draft of the Consultation Paper … … … … … … … … … … … … . 66 - 4 - Page Third Draft of the Consultation Paper and the SFC’s Comments … … … … … … … … … … … … … … … … … … … … … … … 66 Fourth Draft of the Consultation Paper and the SFC’s Comments … … … … … … … … … … … … … … … … … … … … … … … 67 Fifth Draft of the Consultation Paper and the SFC’s Comments … … … … … … … … … … … … … … … … … … … … … … … 68 Sixth Draft of the Consultation Paper … … … … … … … … . … … … … … 68 Sixth Draft Circulated to the Listing Committee … … … … … … … … … 69 Listing Committee Deliberation … … … … … … … … … … … … … … … .. 70 Finalizing the Consultation Paper … … … … … … … … … … … … … … … 70 Observations … … … … … … … … … … … … … … … … … … … … … … … 70 INVOLVEMENT OF THE GOVERNMENT … … … … … … … … … … … … … … … 72 Chronology of Events Involving the Government … … … … … … … … .. 72 From October 2000 to November 2001 … … … … … … … … … … … … … 75 December 2001 to January 2002 … … … … … … … … … … . … … … … … 75 Tripartite Meetings and Co-ordination Committee Meetings.. … … … … . 78 First Tripartite Meeting on 24 January 2002 … … … … … … … … … … … 78 Co-ordination Committee Meeting on 1 March 2002 … … . … … … … … 79 Second Tripartite Meeting on 19 March 2002 … … … … … … … … … … 79 Third Tripartite Meeting on 7 June 2002 … … … … … … … . … … … … … 79 SFST Assumed Office on 1 July 2002 … … … … … … … … … … … … … 79 1 July to 24 July 2002 … … … … … … … … … … … … … … … … … … … . 80 Involvement of the Financial Secretary … … … … … … … … … … … … . 80 OBSERVATIONS … … … … … … … … … … … … … … … … … … … … … … … .. 81 COMMUNICATIONS WITH THE MARKET … … … … … … … … … … … … … … . 82 The HKEx … … … … … … … … … … … … … … … … … … … … … … … … 82 The SFC … … … … … … … … … … … … … … … … … … … … … … … … .. 85 Consultation Networks.............................................................................. 85 - 5 - Page Consulting the Shareholders Group on the HKEx’s Proposals … … … … … … … … … … … … … … … … … … … … … … 85 Observations … … … … … … … … … … … … … … … … . … … … … … . 87 Shareholders Group Meeting on the 6 March 2002 … … … … … … ... 88 Advisory Committee Meeting on the 13 May 2002 … … … … … … … 89 Government … … … … … … … … … … … … … … … … … … … … … … … . 89 OVERALL OBSERVATIONS … … … … … … … … … … … … … … … … … … … .. 90 Formulating the Proposals … … … … … … … … … … … … … … … … … … 90 Alternative Trading Platforms … … … … … … … … … … … … … … … … . 90 CHAPTER 8 THE PRESENTATION AND RELEASE OF THE CONSULTATION PAPER … … … … … … … … … … … … … … … … … … … … … .. 94 PRESENTATION … … … … … … … … … … … … … … … … … … … … … … … ... 94 TIMING FOR THE RELEASE OF THE PR PACKAGE … … … … … … … … … … … 94 TIMING FOR THE RELEASE OF THE CONSULTATION PAPER … … … … … … … .. 96 The HKEx’s Plan … … … … … … … … … … … … … … … … … … … … … . 96 Why 25 July 2002? … … … … … … … … … … … … … … … … … … … … . 96 Why
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