Banking Regulations Acts of India

What is Banking Regulations Acts of India?

Introduction

Banking plays a pivotal role in the economic development of any country, and India is no exception. To ensure the stability, integrity, and transparency of the banking sector, the Reserve Bank of India (RBI) has implemented a comprehensive framework of banking regulations. These regulations are encapsulated in various Banking Regulation Acts, each evolving with the changing economic landscape. In this article, we will delve into the key banking regulations in India, including the Banking Regulation Act, 1949, and subsequent amendments, to understand the intricate web that governs the financial sector.

The Genesis: Banking Regulation Act, 1949

The foundation of banking regulations in India was laid with the enactment of the Banking Regulation Act, 1949. This landmark legislation bestowed significant powers upon the Reserve Bank of India to supervise and regulate the functioning of banks in the country. The primary objectives of the Act were to safeguard the interests of depositors, ensure the solvency and liquidity of banks, and promote a sound and stable banking system.

Under the Banking Regulation Act, 1949, the RBI has the authority to issue licenses for the establishment of new banks, regulate the operations of existing banks, and lay down guidelines for various aspects of banking, such as capital adequacy, governance, and risk management.

Amendments and Evolution

Over the years, the Banking Regulation Act has undergone several amendments to adapt to the changing financial landscape and address emerging challenges. One of the noteworthy amendments was introduced in 1965, empowering the RBI to conduct audits and inspections of banks. Subsequent amendments in 1993 and 1994 focused on enhancing the supervisory powers of the RBI, especially in the context of non-performing assets (NPAs) and prudential norms.

The year 2020 witnessed a landmark amendment to the Banking Regulation Act, empowering the RBI to restructure and amalgamate banks in the interest of depositors and the stability of the financial system. This amendment was a response to the economic challenges posed by the COVID-19 pandemic, aiming to provide flexibility to the RBI in addressing financial stress and ensuring the health of the banking sector.

The Banking Regulation (Amendment) Bill, 2020

Highlights of the Bill

Co-operative banks are exempted from several provisions of the Banking Regulation Act, 1949.  The Bill applies some of these provisions to them, making their regulation under the Act similar to that of commercial banks.

​Co-operative banks may raise equity or unsecured debt capital from the public subject to prior RBI approval.

RBI may prescribe conditions on and qualifications for employment of Chairman of co-operative banks.  RBI may remove a Chairman not meeting ‘fit and proper’ criteria and appoint a suitable person.  It may issue directions to reconstitute the Board of Directors in order to ensure sufficient number of qualified members.

RBI may supersede the Board of Directors of a co-operative bank after consultation with the state government.

The Bill allows RBI to undertake reconstruction or amalgamation of a bank without imposing a moratorium.

Key Issues and Analysis

Co-operative banks provide banking facilities to people of small means.  However, absence of regulatory oversight by RBI on par with commercial banks has contributed to the poor performance of co-operative banks.  The Bill seeks to extend RBI regulation of co-operative banks with respect to management, capital, audit and winding up.

‘Banking’ is a Union List subject in the Constitution and ‘incorporation, regulation and winding up’ of co-operative societies’ is in the State List.  The question is whether regulation of management, audit, capital and winding up of co-operative banks are essential to regulating the activity of banking, and therefore whether the Bill falls within the legislative competence of Parliament.

The Bill enables co-operative banks to issue equity shares to members and to persons residing within the banks’ area of operation.  Since co-operative societies raise capital from members, it is unclear what it means to raise equity capital from the public.  Further, restrictions on redemption of share capital by members may limit their option to exit.

PART A: HIGHLIGHTS OF THE BILL

Context

The banking sector in India consists of scheduled commercial banks, regional rural banks, small finance banks and co-operative banks.  Co-operative banks provide banking facilities to persons of small means thereby fulfilling the objective of financial inclusion. As of 2015, nearly 90% of loans made by co-operative banks were of less than five lakh rupees each, accounting for 33% of total lending by these banks.  Co-operative banks are those co-operative societies whose principal business is banking.   These societies are owned, promoted, controlled and managed by their members and seek to provide support to them.

As per the Constitution, states can legislate on the incorporation, regulation and winding up of co-operative societies. States regulate co-operative societies under their respective Co-operative Societies Acts, through the Registrar of Co-operative Societies (RCS).  In 1965, certain provisions of the Banking Regulation Act, 1949 (BR Act) were made applicable to co-operative banks. This gave Reserve Bank of India (RBI) some powers to regulate co-operative banks.   This was done to protect the interests of depositors and extend deposit insurance coverage to these banks.

RBI regulates state co-operative banks, district (central) co-operative banks and primary co-operative banks (also called urban co-operative banks).  It regulates banking-related activities of these banks such as issuance of licenses for new banks/branches and investment and loan policies.  RBI also prescribes norms for capital adequacy, asset classification, liquidity requirements and exposure norms. The RCS in each state regulates incorporation, registration, management, recovery, audit, supersession of Board of Directors and liquidation of co-operative societies registered with it.

The Banking Regulation (Amendment) Bill, 2020 amends the BR Act to expand RBI’s regulatory control over co-operative banks in terms of management, capital, audit and liquidation.   The Bill was introduced in Lok Sabha on September 14, 2020.  While introducing the Bill, the Finance Minister discussed the need for the Bill to protect depositors’ interest, highlighting the crisis in the Punjab and Maharashtra Co-operative (PMC) Bank.  The Bill replaces the Banking Regulation (Amendment) Ordinance, 2020 promulgated on June 26, 2020. A Bill, seeking to make similar changes, was introduced on March 3, 2020 and withdrawn on September 14.

Key Features

The Bill makes two kinds of changes: (i) extending previously omitted provisions of the BR Act to co-operative banks, and (ii) amendments to certain provisions of the Act that apply to all banks.

Co-operative Banks

Prescription of qualifications for management: Co-operative banks are excluded from provisions of the BR Act with respect to conditions on employment and qualifications for the Chairman and Board of Directors.  The Bill provides that co-operative banks cannot employ as Chairman, someone who is insolvent or has been convicted of a crime involving moral turpitude, among other restrictions.  It empowers RBI to remove the Chairman if he is not fit and proper and appoint a suitable person if the bank does not do so.

The Bill provides that the Board of Directors must have not less than 51% of members who have special knowledge or practical experience in areas such as accountancy, banking, economics or law among others.  It allows RBI to direct a bank to reconstitute the Board if it does not conform to the requirements.  If the bank does not comply, RBI may remove individual directors and appoint suitable persons.

Supersession of Board of Directors: Under the BR Act, RBI is empowered to issue an order to supersede the Board of Directors of multi-state co-operative banks for a maximum period of five years and appoint an Administrator.  Multi-state co-operative banks are co-operative banks with operation in two or more states, and are registered under the Multi-State Co-operative Societies Act, 2002.  For other co-operative banks, RBI may approach the RCS to supersede the Board.   The Bill extends RBI’s power to supersede Board of Directors to all co-operative banks.  In case the bank is registered with a state RCS, RBI may issue the order in consultation with the concerned state government, seeking its comments within such period as specified by RBI.

Audit and winding up: Under the Bill, audit of co-operative banks would be conducted on par with scheduled commercial banks.  Accounts would be audited by a qualified person and RBI approval would be required before appointing, re-appointing or removing an auditor.  RBI may order a special audit for such transactions and such periods as specified in the order.  Previously, RBI could issue an order for an additional audit for co-operative banks, in addition to the audit required under Co-operative Societies Acts.

The Bill makes applicable certain provisions relating to winding up and special provisions for speedy disposal of winding up proceedings of banks will now be applicable to co-operative banks.

Issuance of shares and securities: Co-operative banks are excluded from the provision on issuance of shares and securities under the BR Act.  Other banks are allowed to issue equity or preference shares and RBI is empowered to impose conditions on issue of preference shares.  Voting rights are typically allotted on the basis of one share one vote.  The Act (read with RBI Directions) imposes a ceiling of 15% on voting rights exercised by an equity shareholder.

The Bill modifies the relevant provision of the BR Act to provide that co-operative banks may, with prior approval of RBI, issue equity, preference or special shares at face value or at a premium to members or other persons residing within the banks’ area of operation.   Banks may also issue unsecured debentures or bonds with maturity of not less than 10 years.  Banks cannot withdraw capital without permission from RBI.  Further, members are not entitled to payment from the bank against the surrender of shares.

Formulation of scheme for reconstruction or amalgamation without moratorium

Under the BR Act, RBI may, after placing a bank under moratorium, prepare a scheme for reconstruction or amalgamation of the bank.   This may be done to secure proper management of the bank, or in the interest of depositors, general public, or the banking system.  Banks placed under moratorium do not face any legal action for up to six months.   Further, banks cannot make any payment or discharge any liabilities during the moratorium.  The Bill allows RBI to initiate a scheme for reconstruction or amalgamation of a bank without imposing a moratorium.

PART B: KEY ISSUES AND ANALYSIS

Role of co-operative banks

In a discussion paper on the Banking Structure in India (2013), RBI envisioned a four-tier structure for banks, consisting of international, national, regional and local banks. The fourth tier of local area banks and co-operative banks were envisioned to serve the credit requirements of small borrowers.  Urban co-operative banks (UCBs) cater to the financial needs of the local community, serving persons belonging to lower income groups in urban and semi-urban areas.   RBI (2013) had considered the commercialization of UCBs by converting them into local area banks.  However, they observed the importance of the cooperative spirit in the banking sector in channeling credit to people of small means.   The High Powered Committee (HPC) on UCBs, in 2015 recommended that RBI issue fresh licenses to UCBs to serve in unbanked/ underbanked districts, noting the role these banks play in facilitating financial inclusion.

However, RBI (2013) had also noted that UCBs have performed poorly due to challenges such as low capital base, lack of sources to raise capital (UCBs raise equity capital only from members), poor credit management and lack of professional management. The 2013 paper had suggested that converting UCBs into local area banks to free them from dual control (of RBI and RCS) and improve their ability to raise capital could improve their performance.  Several RBI reports have highlighted the absence of certain regulatory and supervisory powers of RBI over UCBs as one of the reasons for their poor performance.

While RBI regulates licensing and loan policy, prescribes prudential norms and conducts inspection of UCBs, it requires the assistance of RCS to act against the management, or undertake restructuring or liquidation of these banks.  For effective regulation of UCBs, the HPC (2015) had suggested that RBI be given powers to constitute and supersede the Board of Directors, remove the Chairman, conduct audits, and wind up UCBs.  RBI exercises these powers with regard to all other banks regulated under the BR Act.  The Bill empowers RBI to exercise control over co-operative banks in terms of management, capital, audit and winding up.

Note that such additional powers may increase pressure on the supervisory capacity of RBI.   Currently, RBI regulates and supervises 86 scheduled commercial banks, 45 regional rural banks and 10 small finance banks.  The Bill extends RBI’s regulation and supervision to 1,544 UCBs, 363 district (central) co-operative banks and 33 state co-operative banks.

Read More from RBI Press Release: Click Here

Banking Regulation (Amendment) Act 2020: Click Here

Prudential Norms and Basel III Framework

In addition to the Banking Regulation Act, the RBI has implemented prudential norms to enhance the resilience of banks and mitigate risks. The Basel III framework, adopted by India, is a set of international banking regulations developed by the Basel Committee on Banking Supervision. It focuses on strengthening the regulatory framework, improving risk management, and increasing the resilience of the banking sector.

The implementation of Basel III norms in India has necessitated banks to maintain higher capital adequacy ratios, including common equity Tier 1 capital, to withstand financial shocks and ensure the stability of the financial system. These norms are aimed at promoting risk-sensitive and forward-looking regulation, aligning the regulatory capital requirements with the underlying risks.

Insolvency and Bankruptcy Code (IBC)

In the quest for a robust banking regulatory framework, the Insolvency and Bankruptcy Code (IBC) has emerged as a critical piece of legislation. Enacted in 2016, the IBC provides a time-bound and efficient resolution process for insolvent companies, including banks and financial institutions. The IBC empowers the RBI to initiate insolvency proceedings against defaulting banks, ensuring a swift resolution process and protecting the interests of depositors and creditors.

The IBC has played a crucial role in addressing the issue of mounting NPAs in the banking sector. By providing a structured and time-bound resolution process, it has not only improved the recovery of bad loans but has also instilled discipline among borrowers and lenders.

Recent Amendments and Future Outlook

In a dynamic economic environment, regulatory frameworks must evolve to address emerging challenges. The RBI has continued to adapt its regulations to promote financial stability and resilience. Recent amendments in 2022 have focused on strengthening corporate governance in banks, enhancing risk management practices, and promoting transparency in financial reporting.

One of the notable amendments includes the introduction of guidelines for governance in banks, emphasizing the role of the board, risk management committees, and the need for effective oversight. These guidelines aim to instill a culture of prudent risk-taking and accountability, aligning the interests of bank management with the long-term success and stability of the institution.

Looking ahead, the regulatory landscape is expected to witness further enhancements in response to technological advancements, cyber threats, and global economic shifts. The RBI is actively exploring the use of technology, including block chain and artificial intelligence, to improve regulatory efficiency and strengthen the resilience of the banking sector.

Conclusion

The banking regulations in India, rooted in the Banking Regulation Act, 1949, have evolved over the years to address the dynamic nature of the financial sector. With a focus on safeguarding the interests of depositors, ensuring the stability of the banking system, and embracing international best practices, the regulatory framework continues to adapt to emerging challenges.

As India marches towards a digital and technology-driven era, the regulatory environment will play a crucial role in fostering innovation while safeguarding the integrity of the financial system. The recent amendments and ongoing efforts by the RBI underscore the commitment to building a resilient and transparent banking sector that can effectively navigate the complexities of the modern economy.

Read More from PIB Press Release: Click Here

Read More From: TheMoney ATLAS

Read More of Stock Market Investment Information: Click Here