Principal Laws and Regulations Governing the Banking Sector
The Banking Regulation Act, 1949 (the “BRA”) is the primary legislation that regulates banking in India. It lays down the licensing requirements, businesses that a bank may engage in, capital requirements and requirements relating to the constitution of board of directors of banks, among others.
Rules, regulations, directions and guidelines on issues relating to banking and the financial sector are issued by the Reserve Bank of India (the “RBI”) under the Reserve Bank of India Act, 1934 (the “RBI Act”) and the BRA. These guidelines/directions lay down:
The Foreign Exchange Management Act, 1999 governs cross-border transactions and related issues, and provides, among other things, the framework for the licensing of banking and other institutions as authorised dealers in foreign exchange.
Other legislation relevant to the banking sector includes:
Regulators Responsible for Supervising Banks
The RBI is the central bank of India and the primary regulatory authority for supervising banks. The RBI has wide-ranging powers which include prescribing prudential norms, laying down requirements for setting up and licensing banks (including branches of foreign banks in India) and corporate governance-related norms, among others.
India has several other financial sector regulators, including:
The RBI in its statement on Development and Regulatory Policies in October 2023 proposed an omnibus framework for recognising self-regulatory organisations for strengthening compliance culture for various Regulated Entities (REs) of the RBI. The omnibus self-regulatory organisations framework was issued by the RBI in March 2024 and prescribes the broad objectives, functions, eligibility criteria, governance standards, etc.
Broadly, the types of licences can be split into two categories:
No company is allowed to carry on banking business in India unless it has obtained a licence from the RBI in line with the BRA and the RBI Guidelines for “on-tap” Licensing of Universal Banks in the Private Sector, 2016 (the “On-Tap Guidelines”). The On-Tap Guidelines prescribe eligibility requirements for the promoters of the applicants, shareholding requirements including minimum capitalisation requirements, etc.
Dealing in foreign exchange requires a separate licence as an authorised dealer which is issued by the RBI under the Foreign Exchange Management Act, 1999.
Activities and Services Covered
A licensed banking company can also engage in certain other forms of business such as guarantee and indemnity business, factoring, equipment leasing and hire purchase, underwriting, insurance business with risk participation through a subsidiary/joint venture and securitisation, among others, in line with the terms of the BRA and the RBI’s Master Direction on Reserve Bank of India (Financial Services provided by Banks) Directions, 2016.
Licence Application Process
The licensing window is open on-tap, and the applications can be submitted in the prescribed form to the RBI at any time.
The RBI then assesses whether the applicant meets the eligibility criteria laid down in the On-Tap Guidelines.
Following this, the application is referred to a Standing External Advisory Committee (the “SEAC”) set up by the RBI. The SEAC comprises of eminent persons with experience in banking, financial sector and other relevant areas. The tenure of the SEAC is three years. The SEAC has the right to call for more information as well as have discussions with any applicant(s) and seek clarification on any issue as may be required by it.
The SEAC submits its recommendations to the RBI for consideration. The Internal Screening Committee (the “ISC”), consisting of the governor and the deputy governors, examines all the applications and then submits its recommendations to the Committee of the Central Board of the RBI for the final decision to issue in-principle approval.
Some of the key requirements under the On-Tap Guidelines include the following.
The amendment to the “Guidelines for ’on-tap’ Licensing of Small Finance Banks (SFBs) in Private Sector”, dated 5 December 2019, provides clarity on the eligibility and conditions for small finance banks (SFBs) to transition into universal banks. The key changes are as follows.
Eligibility Criteria
SFBs must have a scheduled status and a satisfactory track record for at least five years.
The bank’s shares must be listed on a recognised stock exchange.
Minimum net worth of ₹1,000 crore at the end of the previous quarter (audited).
SFBs must meet the capital to risk assets ratio (CRAR) requirements for SFBs.
Must show net profit in the last two financial years.
The gross non-performing assets (GNPA) and net non-performing assets (NNPA) should be less than 3% and less than 1%, respectively, for the last two financial years.
Shareholding Conditions
There is no mandatory requirement for an identified promoter for the eligible SFB.
Existing promoters, if any, will continue post-transition.
No new promoters or changes in the promoters are allowed during the transition.
No new lock-in requirement for the promoters of the universal bank after the transition.
No change to the dilution plan approved by the RBI for existing promoters.
Preference will be given to SFBs with a diversified loan portfolio.
Transition Process
The SFB must provide a detailed rationale for transitioning.
The application for transition will be assessed based on the Guidelines for “on-tap” Licensing of Universal Banks and the RBI’s Acquisition and Holding of Shares Directions, 2023.
Post-transition, the bank will be subject to all norms, including the non-operative financial holding company (NOFHC) structure (if applicable).
The RBI issued Guidelines on Voluntary Transition of Small Finance Banks to Universal Banks on 25 April 2024 providing detailed guidelines for the transition.
Application Submission
The application must be submitted in Form III as per the Banking Regulation (Companies) Rules, 1949, along with required documents to the RBI’s Department of Regulation.
Conditions for Authorisation
While considering a licence application, the RBI considers the following factors as per the BRA, among others:
The On-Tap Guidelines also specify that the bank should get its shares listed on the stock exchanges within six years of the commencement of business by the bank.
The application form is provided in the Banking Regulation (Companies) Rules, 1949.
Foreign Applicants
In addition to the requirements specified above, in the case of foreign entities the RBI must also be satisfied that:
The RBI has also issued additional guidelines and requirements for foreign banks seeking a licence to operate through a branch or a wholly owned subsidiary.
Timing and Basis of Decision
No specific timeline is prescribed for deciding on an application but the process can typically be expected to take about 18 months or longer.
Cost and Duration
There are no specific ongoing costs associated with a bank licence. Bank licences issued by the RBI are not usually subject to an expiry date.
Requirements on shareholdings and change of control in banks in India are governed by the BRA and the RBI (Acquisition and Holding of Shares or Voting Rights in Banking Companies) Directions, 2023.
Key requirements/restrictions relating to acquisition or increasing control over a bank are as follows.
The following shareholding limits apply.
Foreign Banks (Operating Through a Branch in India)
There are no specific requirements relating to a change in shareholding of a foreign bank operating through a branch in India. However, this may be subject to a condition in its licence.
The corporate governance requirements for banks are primarily provided under:
These laws, regulations and guidelines mainly cover issues such as the following.
Key requirements applicable to registration and oversight of senior management of banks under the BRA include the following.
The BRA prohibits employment of any person whose remuneration or part of whose remuneration takes the form of commission or a share in the profits of the company, or whose remuneration is, in the opinion of the RBI, excessive. Under the BRA, the remuneration of a chair, a managing or full-time director, manager or CEO and any amendment thereto requires the prior approval of the RBI.
The RBI “Guidelines on Compensation of Whole Time Directors/Chief Executive Officers/Material Risk Takers and Control Function Staff, 2019” (the “Compensation Guidelines”) also govern the remuneration of directors and bank executives. These apply to private and foreign banks operating in India.
The Compensation Guidelines have adopted the Financial Stability Board Principles for Sound Compensation. Key requirements under these Guidelines are set out below.
In India, the Prevention of Money-Laundering Act, 2002 (the “PMLA”) provides the legal framework for anti-money laundering and countering financing of terrorism-related requirements. Under the PMLA, banks are required to follow customer identification procedures and monitor their transactions. The RBI has issued Know Your Customer Directions, 2016 (the “KYC Directions”), which lay down the AML/CFT requirements for banks.
Some of the key requirements relating to anti-money laundering and counter-terrorist financing requirements under the KYC Directions are as follows.
The Deposit Insurance and Credit Guarantee Corporation (the “DICGC”), a wholly owned subsidiary of the RBI administers the Deposit Insurance Scheme. Deposits such as savings, fixed, current and recurring deposits at all commercial banks including branches of foreign banks functioning in India, local area banks and regional rural banks are insured by the DICGC. However, the following types of deposits are not insured:
Each depositor in a bank is insured up to a maximum of INR0.5 million for both principal and interest amount as of the date of liquidation/cancellation of a bank՚s licence or the date on which the scheme of amalgamation/merger/reconstruction comes into force. The premium for the deposit insurance is borne entirely by the insured bank.
India adopted the Basel III Capital Regulations in 2013, which were fully implemented on 1 October 2021, as noted under the RBI’s Master Circular on Basel III Capital Regulations dated 12 May 2023 which were later amended on 1 April 2024. The capital adequacy framework applies to banks at both a consolidated and a standalone level.
Banks are required to maintain a minimum Pillar One capital to risk weighted assets ratio (CRAR) (a ratio of the bank’s capital in relation to its risk weighted assets) of 9% on an ongoing basis (other than capital conservation buffer and countercyclical capital buffer, etc).
Every bank needs to maintain, by way of a cash reserve, a sum equivalent to a certain percentage of the total of its net demand and time liabilities (NDTL) in India. The NDTL of a bank includes:
Banks currently need to maintain a cash reserve ratio (CRR) of 4.50% of the bank’s total NDTL as of the last Friday of the second preceding fortnight. Every scheduled bank needs to maintain a minimum CRR of not less than 90% of the required CRR on all days during the reporting fortnight, in such a manner that the average CRR maintained daily will not be less than the CRR prescribed by the RBI.
Every scheduled commercial is required to maintain assets (such as unencumbered government securities, cash and gold) the value of which will not, at the close of business on any day, be less than 18% of their total net demand and time liabilities in India as of the last Friday of the second preceding fortnight in line with the method of valuation specified by the RBI from time to time.
Banks are also required to maintain a liquidity coverage ratio (LCR) of 100%, which requires banks to maintain high quality liquid assets (HQLAs) to meet 30 days net outgoings under stressed conditions.
The minimum leverage ratio for domestically systemically important banks is 4% and 3.5% for other banks.
Regulatory Framework for Resolution of Insolvency of Banks
There is no specialised resolution regime for insolvency of financial firms in India. The BRA lays down the following modes of resolution for failing banks.
Bank Limited’s scheme of reconstruction in 2020 provides an example of resolution of a bank through a draft RBI scheme of reconstruction under Section 45 of the BRA.
The RBI has also introduced a “Prompt Corrective Action (PCA) Framework for Scheduled Commercial Banks”, which is governed by its notification dated 2 November 2021. The prompt corrective action framework was introduced to enable supervisory intervention at the appropriate time and require the bank to initiate and implement remedial measures in a timely manner, so as to restore its financial health. The prompt corrective action taken may include restriction on dividend distribution/remittance of profits, promoters to bring in capital, restriction on branch expansion, restrictions on capital expenditure, other than for technological upgradation within board approved limits, special supervisory actions, strategy-related, governance-related, capital-related, credit risk-related, market risk-related, HR-related, profitability-related, operations/business-related or any other specific action that the RBI may deem fit considering the specific circumstances of a bank.
Additionally, in July 2024, the RBI introduced a PCA Framework for Urban Co-operative Banks (UCBs), effective from 1 April 2025, focusing on Tier 2, Tier 3 and Tier 4 UCBs. This framework replaces the SAF and includes structured corrective measures for capital, asset quality and profitability.
Importantly, in November 2019, the Insolvency and Bankruptcy (Insolvency and Liquidation Proceedings of Financial Service Providers and Application to Adjudicating Authority) Rules, 2019 (the “FSP Rules”) were notified under the IBC. The FSP Rules expanded the remit of the IBC from corporate debtors to insolvency and liquidation of financial service providers. The FSP Rules are currently applicable to systemically important non-banking finance companies having an asset size of INR5 billion or more.
In April 2023, the RBI released a framework for the acceptance of green deposits applicable to banks to encourage banks to offer green deposits to customers and help increase credit flow to green projects.
Some of the key features of the green deposit framework include the following.
The RBI also issued a draft disclosure framework on climate-related risks in February 2024. The draft guidelines propose REs to disclose information about their climate-related financial risks and opportunities for the users of financial statements. The final guidelines in relation to this disclosure framework are still awaiting issuing.
There is no applicable information in this jurisdiction.
The Banking Laws (Amendment) Bill, 2024 proposes comprehensive amendments to key legislation governing India’s banking sector. The amendments aim to strengthen governance, ensure consistent reporting mechanisms, enhance depositor and investor protection, and modernise banking practices to reflect evolving financial needs.
The RBI issued a statement on development and regulatory policies in April 2024 proposing certain assumptions under the liquidity coverage ratio framework be revisited because of emerging risks in the increased ability of depositors to quickly withdraw or transfer deposits during times of stress, using digital banking channels. A draft circular in this regard was released in July 2024 and is expected to come into effect in April 2025. The norms proposed include imposing additional run-off factor on depositors enabled with mobile banking facilities and valuation of Level 1 HQLA held in the form of government securities.
The RBI also released a draft guideline on Income Recognition, Asset Classification and Provisioning pertaining to Advances – Projects Under Implementation on 3 May 2024. The draft guideline covers the financing of projects in the infrastructure, non-infrastructure and commercial real estate sectors by banks and other entities regulated by the RBI. The RBI has increased the provisioning requirement on standard assets. The RBI has proposed categorising projects into design, construction and implementation phases. The guideline now proposes additional provisioning norms in relation to projects based on their phase.
In its annual report for the financial year 2023-24, the RBI also highlighted multiple regulatory changes had been introduced to strengthen the financial market including the following key changes.
The Insolvency and Bankruptcy Board of India issued Guidelines for Committee of Creditors on 6 August 2024 with the aim of enhancing the efficiency, transparency and decision-making of the committee of creditors (CoC) under the IBC. Given that Indian banks and financial institutions typically form part of the CoC their regulation by the Insolvency and Bankruptcy Board of India is presently unclear. However, the deputy governor of the RBI has indicated that the Insolvency and Bankruptcy Board of India, which is the designated regulator under the IBC, should have the powers to enforce norms around the conduct of all stakeholders under the IBC process and an enforceable code of conduct may be brought in to ensure best practices are not deviated from.
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aditee.dash@azbpartners.com www.azbpartners.comThe RBI’s Draft Prudential Framework for Income Recognition, Asset Classification and Provisioning pertaining to Advances (Projects Under Implementation)
Background and overview of prudential frameworks
The Reserve Bank of India (RBI), India’s central bank and monetary authority, specifies from time to time the prudential norms which are applicable to specified classes of entities regulated by the RBI – with the aim of achieving greater consistency and transparency in the published accounts of regulated entities and proper disclosure of financial health of banks.
The introduction of prudential norms by the RBI has been carried out in a phased manner on the basis of recommendations from the Committee on the Financial System, which has resulted in the RBI revising and issuing prudential frameworks and provisioning norms from time to time.
In its “Statement on Developmental and Regulatory Policies” issued on 6 October 2023, the RBI noted that project finance is generally characterised by various complexities, which among other things include long gestation periods. Therefore, with a view to strengthening the extant regulatory framework governing project finance and harmonising the instructions of the RBI across regulated entities, the RBI has reviewed the extant prudential norms and proposed issuing a comprehensive regulatory framework applicable for regulated entities.
The RBI on 3 May 2024, released the Draft Prudential Framework for Income Recognition, Asset Classification and Provisioning pertaining to Advances – Projects Under Implementation, Directions, 2024 the (“Draft Framework”).
In the press release accompanying the Draft Framework, the RBI noted that given the complexities involved in project finance, the revised guidelines seek to provide an enabling framework for regulated entities for financing of project loans, while addressing the underlying risks.
Stipulations regarding prudential conditions and prudential norms
The Draft Framework sets out the prudential framework for advances and provisioning norms applicable to project finance exposures. Presently, the existing prudential norms in relation to advances are provided under the Master Circular – Prudential norms on Income Recognition, Asset Classification and Provisioning pertaining to Advances, dated 2 April 2024 (the “2024 Prudential Norms Master Circular”). The said master circular is applicable to commercial banks (excluding regional rural banks).
The Draft Framework seeks to build on the provisions as already set out in the 2024 Prudential Norms Master Circular. The key features of this Draft Framework may be set out as follows:
Bifurcation of stages of project
For the purposes of the Draft Framework, each project has been classified into three phases:
Prudential conditions for project finance
Increased provisioning
The Draft Framework stipulates different tiers of provisioning norms based on the stage of project:
Existing prudential framework for resolution of stressed assets
The RBI issued the June 7 Framework with a view to provide a framework for early recognition, reporting and time bound resolution of stressed assets and to minimise losses. The June 7 Framework effectively contemplates the following:
An RP implemented in accordance with the terms of the June 7 Framework may involve any action/plan/reorganisation including, but not limited to:
RPs under the June 7 Framework have been frequently used by banks for resolution of stressed assets. However, as provided for under the June 7 Framework, restructuring of exposures relating to projects under implementation on account of change in the DCCO was excluded from the ambit of the June 7 Framework. The intention of the RBI appears to have been to undertake a comprehensive review of the regulatory norms relating to the financing of project loans.
Restructuring and resolution under the Draft Framework
The Draft Framework seeks to harmonise the framework for the restructuring and resolution of stressed account exposures relating to projects under implementation on account of change in the DCCO.
The Draft Framework defines “Project” to include ventures undertaken through capital expenditure (involving the current and future outlay of funds) for the creation/expansion/upgrade of tangible assets and/or facilities in the expectation of streams of benefits extending far into the future. The Draft Framework also notes that Projects usually have the characteristics of a gestation period, irreversibility and substantial outlays.
In terms of the Draft Framework, lenders are expected to monitor the build-up of stress in a project on an ongoing basis and initiate a resolution plan well in advance, and the occurrence of a credit event with any of the lenders in the project finance arrangement during the construction phase shall trigger a collective resolution in accordance with the June 7 Framework. A credit event, under the Draft Framework, is deemed to have occurred in case of occurrence of any or all of the following events:
Further, unless otherwise specified, the term “default” under the June 7 Framework shall be read as “credit event” for the purpose of project finance accounts.
In most cases, within 30 days of the occurrence of the credit event, all lenders are required to undertake a prima facie review of the debtor account (“Review Period”). Unless otherwise provided for in the Draft Framework, during this Review Period, the lenders are required to act in accordance with the terms of the June 7 Framework. The actions undertaken by the lenders should include the signing of the Inter Creditor Agreement, and the implementation of the RP, where required.
Specific treatment of accounts in case of extension of the DCCO
An RP involving change of the DCCO (stipulations regarding which are now covered under the Draft Framework) shall be deemed to be completed successfully only if the following conditions are met:
Further, under the June 7 Framework, an account classified as “standard” must be downgraded and classified as an NPA (ie, a non-performing asset) upon completion of restructuring.
For reclassification of such accounts as “standard” by the lenders, in additional to compliance with other conditions as stipulated under the June 7 Framework, all outstanding loan/facilities in the account must demonstrate “satisfactory performance” (as defined under the June 7 Framework) during the period from the date of implementation of RP up to the date by which at least 10% of the sum of outstanding principal debt (as per the RP) and interest capitalisation sanctioned as part of the restructuring, if any, is repaid.
However, in the case of a RP involving change in the DCCO (subject to certain conditions specified in the Draft Framework), a project finance account classified as “standard” in the books of the lenders may continue to be classified as “standard” on account of the extension of the DCCO and a consequential shift in the repayment schedule for an equal or shorter duration (including the start date and end date of the revised repayment schedule). The maximum permissible cumulative extension/deferment of the DCCO to avail dispensation with the requirement to classify the account as an NPA is three years and two years, respectively for infrastructure and non-infrastructure projects.
This is also contemplated (subject to compliance with the specified conditions) under the 2024 Prudential Norms Master Circular. Note that one of the conditions under the said circular includes the requirement of the revised DCCO falling within the period of two years and one year from the original DCCO stipulated at the time of financial closure for infrastructure projects and non-infrastructure projects (including commercial real estate projects), respectively.
A similar relaxation (in relation to the classification of accounts as “standard”) is available for a change in the repayment schedule of a project loan caused due to an increase in the project outlay on account of an increase in the scope and size of the project.
It is important to note that a resolution plan under the June 7 Framework and the Draft Framework is distinct from a resolution plan under the (Indian) Insolvency and Bankruptcy Code. 2016 (“Code”). The June 7 Framework and Draft Framework focus on the prudential resolution of stressed assets by entities regulated by RBI, while the insolvency resolution process under the Code involves the insolvency resolution of corporate entities through a regulated process administered by a resolution professional appointed under the Code, with oversight from a bankruptcy court.
Future outlook
While the Draft Framework provides much needed clarity with respect to the restructuring of exposures relating to projects under implementation on account of a change in the DCCO, the significant increase in provisioning requirements (although in a phased manner) can be a cause for concern for many lenders and borrowers.
For lenders, such an increase in provisioning norms will likely result in credit costs increasing. For borrowers, these provisioning norms may lead to an increase in borrowing costs. Further, considering the increase in provisioning norms, some lenders may become risk averse, which may impact access to capital for some borrowers.
Further, the prudential conditions in relation to project finance (such as minimum lender contributions in consortium finance projects) will lead to lenders reevaluating many current practices – which may end up streamlining the credit system. It may also have an impact on projects which have minimal cashflows at the beginning of the lifecycle (for example – greenfield projects). However, the impact of such directions will have to be tested against the larger goal of financial stability and growth.
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