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.1 General

.11 What is Form S-3 and where can I find it?

Form S-3 is a short form Securities Act registration statement that can be used to register the offer and sale of many different types of securities, including common and preferred stock, options, warrants, debt (convertible and non-convertible) and debt guarantees. Form S-3 can be used to register primary offerings (i.e., when an issuer sells its own securities) and secondary offerings (i.e., the resale of securities by a selling security holder that is not the issuer). Form S-3 may be used to register a current sale of securities, a future sale of securities, or a continuous offering.
The disclosure requirements of Form S-3 are set forth under the various items within the body of the form and generally cross-reference to Regulations S-X or S-K for the specific requirements. One of the principal differences between Form S-3 and Form S-1 is that prospectus disclosure in Form S-3 is largely based on information that is incorporated by reference from previously filed Exchange Act reports and the prospectus is kept current through the automatic incorporation by reference of future Exchange Act reports, whereas disclosure in Form S-1 is generally based on disclosures included in the prospectus.
The text of Form S-3 is available on the SEC’s website (https://www.sec.gov/files/forms-3.pdf).
Other sources that issuers should consider when preparing a Form S-3 include the General Instructions to Form S-3 and Regulation C, which contains the general requirements for preparing and filing a registration statement under the Securities Act. Additionally, the SEC staff has published extensive interpretive guidance including various Compliance & Disclosure Interpretations. See, for example, Securities Act Forms CDI Sections 114-124 and 214-224.

.12 Where can I find the eligibility requirements for using Form S-3?

The eligibility requirements for use of Form S-3 are set forth in General Instruction I to the form. To be eligible to use Form S-3, an issuer must meet the form's "Registrant Requirements" (included in General Instruction I.A) and the transaction must meet one of the form's "Transaction Requirements" (included in General Instruction I.B.). Majority-owned subsidiaries should refer to General Instruction I.C.

.13 What is a shelf registration statement?

A Form S-3 that registers the future sale of securities is commonly referred to as a shelf registration statement because all of the registration activity (including SEC staff review) takes place upfront, and then, when the decision is made to sell securities, they are "taken off the shelf" with no further review by the SEC staff. Securities are normally "taken off the shelf" by filing a prospectus supplement under Securities Act Rule 424(b) that describes the terms of the securities offered. The process of selling securities from an already effective shelf Form S-3 is also referred to as a shelf “takedown.” See Securities Act Rule 415 for additional information.

.131 What is an automatic shelf registration statement?

The SEC permits companies that meet the definition of a well-known season issuer at the most recent determination date (see Securities Act Rule 405) to use Form S-3 as an "automatic" shelf registration statement (sometimes referred to as an ASR). The Form S-3 is referred to as an automatic shelf registration statement because it becomes effective immediately (i.e., automatically) upon filing. See Securities Act Rule 462(e). The specific requirements relating to automatic shelf registration statements are set forth in General Instruction I.D of Form S-3.
By becoming effective automatically upon filing, the pre-effective SEC staff review and comment process has essentially been eliminated for well-known seasoned issuers. Accordingly, SEC staff reviews are almost entirely dependent on the Exchange Act reporting stream for these issuers.
Automatic shelf registration is essentially "company registration" (as compared to "transaction registration") because the base prospectus included in an automatic shelf registration statement may omit:
- information that is unknown or not reasonably available to the issuer (Securities Act Rule 409);
- information as to whether the offering is a primary offering, a secondary offering, or a combination of the two;
- the plan of distribution for the securities;
- a description of the securities registered (other than an identification of the name or class of such securities); and
- the identification of other issuers.
[Editor’s note: See Securities Act Rule 430B for details regarding the permissible omission of information from the base prospectus in an automatic shelf registration statement.]
Just as with non-automatic Form S-3 shelf registration statements, the omitted information in an automatic shelf registration statement may be provided at the time of a takedown by a post-effective amendment to the registration statement, incorporation by reference of an Exchange Act report, or through a prospectus supplement (as appropriate).

.2 Financial statements and related requirements

.21 Where can I find the financial statement requirements applicable to Form S-3?

Unlike Form S-1, which specifically calls for an issuer to provide the financial statements required by Regulation S-X, financial statement disclosure in Form S-3 principally relies on the incorporation by reference of financial statements from previously filed Exchange Act reports (e.g., Forms 10-K and 10-Q).
Item 12 of Form S-3 requires the prospectus to specifically incorporate by reference (i) the most recent annual report on Form 10-K and (ii) all other reports filed pursuant to Section 13(a) or 15(d) of the Exchange Act (e.g., Form 8-K and Form 10-Q) since the end of the fiscal year covered by that Form 10-K. See SEC 3150.13 for a discussion of the distinction between filing and furnishing a Form 8-K.
Accordingly, the principal mechanism for providing financial statements in Form S-3 at the time of filing and effectiveness is through incorporation by reference of the financial statements included in previously filed Forms 10-K and 10-Q. There are, however, certain instances in which the previously filed financial statements will need to be updated prior to filing a Form S-3. See SEC 2120.22 regarding the SEC’s age of financial statements requirements and SEC 2120.23 regarding the requirements of Item 11(b) of Form S-3.
[Editor’s note: In addition to requiring the incorporation by reference of previously filed Exchange Act reports, the Form S-3 prospectus must also include a statement that all documents filed subsequent to the initial offering (i.e., subsequent to the effective date of the initial Form S-3) pursuant to Sections 13(a) and (c), 14, or 15(d) of the Exchange Act are deemed to be incorporated by reference into the Form S-3 as long as the offering is in process. This mechanism is commonly referred to as “forward incorporation” and is a means of keeping the Form S-3 current. See SEC 2120.908 for information relating to Exchange Act reports filed after the initial filing of Form S-3 but before the Form S-3 becomes effective.]

.22 Given that Form S-3 generally relies on incorporation by reference of previously filed Exchange Act reports for its financial statement requirements, does an issuer still need to consider the SEC’s age of financial statements requirements prior to filing a Form S-3?

Yes. Even though Form S-3 doesn’t specifically refer to the requirements of Regulation S-X, the SEC’s age of financial statements requirements in S-X 3-12 (S-X 8-08 for a smaller reporting company) are applicable to a registration statement on Form S-3. That means the financial statements incorporated by reference in the Form S-3 from previously filed Exchange Act reports may need to be updated to a more recent date before the Form S-3 is filed or becomes effective. This is true whether or not the Form S-3 is an automatic shelf registration statement. See Securities Act Forms CDI 223.01. See also SEC 4600 (including SEC 4600.41 for SEC staff guidance with respect to interim financial statements).
For example, a calendar year-end registrant would need to provide its December 31, 2022 audited financial statements in connection with a Form S-3 filed after February 14, 2023 unless it meets the requirements of S-X 3-01(c) (S-X 8-08(b) for a smaller reporting company). This is true even though the December 31, 2022 Form 10-K isn’t due until the 60th, 75th or 90th day after year end (depending on the issuer’s accelerated filer status).
[Editor’s note: A different analysis would apply to a registration statement on Form S-8. See SEC 2125.31.]

.23 Are there circumstances under which the financial statements incorporated by reference from previously filed Exchange Act reports would need to be updated prior to filing a new Form S-3?

Yes. If the financial statements incorporated by reference from the most recent Form 10-K do not reflect certain material events subsequent to the date of those financial statements, then they may need to be updated prior to filing the Form S-3. If the following financial statements or information are not included in the registrant's Exchange Act reports or in a prospectus filed in an effective registration statement incorporated by reference in the Form S-3, then Item 11(b) of Form S-3 requires the inclusion of revised financial statements or information in the Form S-3:
(a) The financial information required by S-X 3-05 and S-X Article 11 (S-X 8-04 and 8-05 for a smaller reporting company) regarding businesses acquired or to be acquired (see SEC 4550 and 4560). See also S-K 504 (Instruction 6) when the proceeds of an offering will or may be used to finance the acquisition of another business.
(b) Financial statements prepared in accordance with Regulation S-X if there has been a change in an accounting principle retrospectively applied or restatement for a correction of an error where such change or correction requires a material change to the financial statements.
[Editor’s note: With respect to a retrospective change in accounting principle, the Form S-3 must include or incorporate by reference audited annual financial statements that give retrospective effect to the accounting change when previously filed interim financial statements included or incorporated by reference in the Form S-3 reflect the newly adopted accounting principle (assuming the adjustments to reflect the new accounting principle are material to the relevant financial statements). If the most recent interim financial statements included or incorporated by reference in the Form S-3 properly do not reflect the application of the new accounting principle, then the previously issued financial statements may not be retrospectively adjusted to reflect the newly adopted accounting principle; however, S-X Article 11 pro forma information may be required. See SEC 2120.231 for an example.]
(c) Retrospectively adjusted financial statements prepared in accordance with Regulation S-X if a combination of entities under common control has been consummated subsequent to the most recent fiscal year-end and the transferred business(es), considered in the aggregate, meet the test of a significant subsidiary. See SEC 4400 and SEC FRM 13410.1.
[Editor’s note: The Form S-3 must include or incorporate by reference audited annual financial statements that give retrospective effect to the combination of entities under common control when previously issued interim financial statements included or incorporated by reference in the Form S-3 reflect the combination (assuming the adjustments to reflect the combination are material to the relevant financial statements). If the most recent interim financial statements included or incorporated by reference in the Form S-3 properly do not reflect the combination, then the previously issued financial statements may not be retrospectively adjusted to reflect the combination; however, S-X Article 11 pro forma information may be required.]
(d) Financial information required because of a material disposition of assets outside the normal course of business.
[Editor’s note: The Form S-3 must include or incorporate by reference audited annual financial statements that give retrospective effect to discontinued operations when the period covered by previously issued interim financial statements includes the date upon which discontinued operations reporting is required (assuming the adjustments to reflect the discontinued operation are material to the relevant financial statements). If the date upon which discontinued operations reporting is required is subsequent to the date of the most recently issued financial statements included or incorporated by reference in the Form S-3, then the financial statements may not be retrospectively adjusted to reflect the discontinued operations; however, S-X Article 11 pro forma information may be required. See SEC FRM 3120.1.]
Although not listed in Item 11(b) of Form S-3, retrospectively adjusted annual audited financial statements prepared in accordance with Regulation S-X are required when a registrant changes its reportable segments (assuming the effect on the previously issued annual financial statements is material). See SEC FRM 13110.2.
[Editor’s note: The Form S-3 must include or incorporate by reference audited annual financial statements that give retrospective effect to the change in reportable segments when previously filed interim financial statements included or incorporated by reference in the Form S-3 reflect the new segment presentation (assuming the adjustments to reflect the new segment presentation are material to the relevant financial statements). If the most recent interim financial statements included or incorporated by reference in the Form S-3 properly do not reflect the new segment presentation, then the previously issued financial statements may not be retrospectively adjusted to reflect the new segment presentation; however, disclosure of the pending change may be required.]
Additionally, although not listed in Item 11(b) of Form S-3, stock splits and stock dividends also require retrospective presentation. Historically, the SEC staff has not required the retrospective adjustment of previously filed financial statements that are incorporated by reference into a registration statement or proxy statement for reasons solely attributable to a stock split or stock dividend. In lieu of revising the financial statements, the SEC staff has historically accepted inclusion or incorporation by reference of a summary or selected financial data table which includes revised per share information for all periods, with prominent disclosure of the stock split or stock dividend. See SEC FRM 13500.
[Editor’s note: SEC Release No. 33-10890, Management’s Discussion and Analysis, Selected Financial Data, and Supplementary Financial Information (SEC Release 33-10890) eliminated the selected financial data table requirements. The guidance included in SEC FRM 13500 has not been updated to reflect SEC Release 33-10890.]
[Editor’s note: See SEC 2125.42 for a discussion of the analysis in connection with a registration statement on Form S-8.]

.231 How would the requirements of Item 11(b) work in the case of a retrospective change in accounting principle?

Assume that Registrant A adopts a new accounting standard on January 1, 2023 and that the new accounting standard requires retrospective application. The financial statements included in Registrant A’s December 31, 2022 Form 10-K properly reflect application of the prior accounting standard. The financial statements included in Registrant A’s March 31, 2023 Form 10-Q (including the 2022 comparative period financial statements) will properly reflect the application of the newly adopted accounting standard. Assume the impact of applying the new accounting standard is material to all periods.
If Registrant A were to file a new Form S-3 that incorporates by reference interim financial statements that reflect the application of the new accounting standard (i.e., after filing the March 31, 2023 Form 10-Q), then the prior period annual audited financial statements must be retrospectively adjusted to reflect the new accounting principle. Registrant A’s auditor will likely dual date their audit report issued in connection with the revised annual financial statements.
Absent the Form S-3 filing, Registrant A’s prior period annual financial statements may not need to be revised to reflect the retrospective adjustment until the next time they are filed (e.g., in connection with the filing of the December 31, 2023 Form 10-K). The Form S-3 filing may accelerate the need to complete the process of revising the prior period annual financial statements.
[Editor's note: The interim financial statements for the most recent year-to-date period (and the comparative periods of the prior year) must also give effect to the new accounting standard. However, interim financial statements covering periods other than the financial statements described in the preceding sentence are generally not restated in connection with a new or amended registration statement or proxy statement even if those prior period interim financial statements are incorporated by reference in a new or amended registration statement or proxy statement. We understand this is because S-X 3-02 only requires an interim income statement covering the year-to-date period from the date of the latest audited balance sheet up to the date of the most recent interim balance sheet being filed (together with the corresponding period in the preceding year).]

.232 How are revised financial statements typically made a part of the Form S-3?

Most companies file the revised financial statements and financial information in a Form 8-K (usually under Item 8.01). Companies should consult with their legal counsel about the proper mechanism to place revised financial statements and other financial information on file.
[Editor's note: The previously filed Form 10-K generally should not be amended unless that Form 10-K is otherwise being amended to correct a material error in previously issued financial statements. See SEC 3130.916 and also SEC FRM 13110.6. However, a registrant should consider if its MD&A needs to be revised in conjunction with the filing if it contains revised financial statements. The MD&A is usually revised when annual audited financial statements are updated for a change in segments. See SEC FRM 13310.1.]

.24 Are the considerations outlined in SEC 2120.22 and .23 applicable at the time of a takedown from an already effective Form S-3?

The considerations outlined in SEC 2120.22 and .23 are in the context of filing a registration statement on Form S-3. There are different considerations associated with a shelf takedown.
For instance, the SEC staff has indicated that S-X 3-01 does not prevent a shelf takedown from occurring and would not apply to a prospectus supplement as it is not for purposes of updating the prospectus under Section 10(a)(3) of the Securities Act. See Securities Act Rules CDI 212.13 and SEC 4600.803.
Most Form S-3 registration statements include the undertaking specified in S-K 512(a)(1)(ii). Accordingly, when preparing to take securities off the shelf by means of a prospectus supplement, the registrant will consider whether there have been any facts or events arising after the effective date of the registration statement (or most recent post-effective amendment thereof) which, individually or in the aggregate, represent a "fundamental change" in the information set forth in the registration statement. If there have been one or more fundamental changes, the registrant would need to consider whether a post-effective amendment must be filed prior to the takedown. The determination of what constitutes a "fundamental change" is a legal matter.
Generally, registrants and their legal counsel have concluded that discontinued operations, segment changes, and changes in accounting principle do not represent "fundamental changes" to the information set forth in the registration statement. Accordingly, those registrants generally do not retrospectively adjust their prior period annual financial statements in connection with a takedown, even if they would have been required to do so in connection with a new or amended registration statement (e.g., because the effects of changes on the previously issued financial statements are material).

.25 Are there any incremental financial statement requirements associated with a Form S-3 which registers guarantees or collateralized securities?

If the Form S-3 is registering securities (usually debt) that are guaranteed by one or more subsidiaries or a parent company, the guaranty is generally considered a security under US securities laws and, therefore, is also subject to the SEC's registration and reporting requirements. As a result, the Form S-3 may need to include or incorporate by reference additional information that was not previously required. See SEC 4530.
If the Form S-3 is registering securities that are collateralized by the securities of one or more of a registrant's affiliates (e.g., the stock of a consolidated subsidiary), then the Form S-3 may be required to include or incorporate by reference information that was not previously required. See SEC 4540.

.7 Accountant's consent

.71 Where can I find information relating to the SEC’s requirements for accountants’ consents?

See SEC 2400 for a discussion of accountants’ consents.

.8 Expert's language

.81 Where can I find information relating to experts language?

See SEC 2300 for a discussion of experts language.

.9 Frequently asked questions

.901 How does the SEC define the phrase “twelve calendar months and any portion of a month” for purposes of assessing the timely filing eligibility criterion in General Instruction I.A.3(b) of Form S-3?

For purposes of Form S-3 eligibility, a calendar month begins on the first day of the month and ends on the last day of that month. Accordingly, if a registrant was not timely on a Form 10-Q due on August 9, 2023, but was timely thereafter, it would first satisfy the timely filer requirement of Form S-3 on September 1, 2024. See Securities Act Forms CDI 115.06. See SEC 3145 for information relating to non-timely filings.

.902 Would a real estate investment trust whose shares are not traded in a public market be considered to have a public float for purposes of determining eligibility to use Form S-3?

Certain REITs offer and sell shares of common stock through offerings registered under the Securities Act, but the shares are not publicly traded. The SEC staff has indicated that a REIT whose shares are not traded in a public market would not be considered to have a "common equity public float" for purposes of determining its accelerated filer status or for determining whether it is eligible to use Form S-3.

.903 How does the use of Form 12b-25 (Notification of Late Filing) impact an issuer’s eligibility to use Form S-3?

See SEC 3145.14 for discussion of eligibility when a registrant has filed a Form 12b-25.

.904 Can a registrant file or use an automatic shelf registration statement if the registrant filed its Form 10-K for its most recent fiscal year-end without the information called for by Part III of that Form and has not yet filed the Part III information?

As discussed more fully in SEC 3130.912, General Instruction G(3) to Form 10-K permits a registrant to file its Form 10-K without the information required by Part III of that form and file that information no later than 120 days after year-end. The SEC staff has stated that it will not object to either the filing or use of an automatic shelf registration statement by an issuer which has filed its Form 10-K but has not filed the Part III information for that year. However, the SEC staff has stated that “issuers are responsible for ensuring that any prospectus used in connection with a registered offering contains the information required to be included therein by Securities Act Section 10(a) and Schedule A.” See Securities Act Forms CDI 114.05.
Registrants that are not eligible to use an automatic shelf registration statement are usually not allowed to use the accommodation discussed in Securities Act Forms CDI 114.05. As such, issuers should discuss the need to file Part III of Form 10K before the registration statement is declared effective by the SEC with legal counsel.

.906 Can an issuer with an effective automatic shelf registration statement continue to use that registration statement if it does not meet the definition of a well-known seasoned issuer at the time the issuer files its Form 10-K?

The filing of an annual report on Form 10-K triggers a new determination date for well-known seasoned issuer status. If an issuer no longer meets the definition of a well-known seasoned issuer on the date it files its annual report on Form 10-K, then it would generally not be able to use a previously filed automatic shelf registration statement. Instead, the company would likely need to amend its previously filed registration statement to comply with a form that it is eligible to use (e.g., a Form S-1 or a non-automatic shelf registration statement such as Form S-3).
The SEC staff published guidance for a company that no longer meets the definition of a well-known seasoned issuer at the filing date of its current Form 10-K. This guidance provides certain steps that the company may be able to take in order to preserve its ability to readily access the capital markets. Some of these steps must be taken before the issuer files its Form 10-K. See Securities Act Rules CDI 198.06.

.907 Is Form SD (Specialized Disclosure) automatically incorporated by reference into Form S-3?

No. See General Instruction B.4. of Form SD.

.908 Is an issuer required to file a pre-effective amendment to Form S-3 to specifically incorporate by reference an Exchange Act report filed after the Form S-3 was filed but before it became effective?

The SEC staff has indicated that a registrant is not required to file a pre-effective amendment solely to incorporate an Exchange Act report filed prior to effectiveness, provided that the registrant includes a statement in its initial registration statement (in addition to the statement regarding incorporation after the date of the prospectus) that all filings filed by the registrant pursuant to the Exchange Act after the date of the initial registration statement and prior to effectiveness of the registration statement are deemed to be incorporated by reference into the prospectus. In the first prospectus used after effectiveness, a copy of which is required to be filed under Rule 424(b), the registrant should identify all Exchange Act reports filed prior to effectiveness. If the registration statement does not specifically incorporate reports filed during the waiting period, a pre-effective amendment would be required in order to incorporate the Exchange Act report. See Securities Act Forms CDI 123.05.

.909 Does the fact that an automatic shelf registration statement becomes effective immediately upon filing alter an auditor’s responsibilities under PCAOB AS 4101?

No. Auditors must still perform their responsibilities under PCAOB AS 4101.

.910 Where can I find guidance on the required pro forma financial information requirements when the offering proceeds are used to (i) finance an acquisition, or (ii) retire debt or preferred stock?

See the guidance included in SEC 2110.904 and .905.

.911 Is incorporating by reference or cross-referencing to information outside of the financial statements permitted in financial statements?

Generally, no. See Item 12(d) of Form S-3 and SEC 2110.908 for additional guidance.
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