RBI’s Regulatory Landscape: Decoding Guidelines for REs’ Investments in AIFs
[By Lavanya Chetwani] The author is a student of National Law University Odisha. INTRODUCTION Recently, the Reserve Bank of India (‘RBI’) vide its circular dated December 19 has issued guidelines to prevent all Regulated Entities (‘RE’) from holding units of Alternative Investment Funds (‘AIF’) which have invested in a debtor company of the RE. AIFs are currently regulated by the Securities and Exchange Board of India (‘SEBI’) under the SEBI (AIF) Regulations, 2012 (‘The Regulation’) and SEBI Master Circular For AIFs, 2023 (‘MC-AIF’). The guidelines issued by the RBI is motivated by a consultation paper issued by SEBI on 19 May 2023. SEBI had identified in its consultation paper certain structures which could be used for “evergreening” of loans by regulated entities. However, the guidelines might have an impact beyond the stated intent. UNDERSTANDING THE GUIDELINES AIFs have been defined by SEBI in paragraph 2(1)(b) of the Regulation as any fund established or incorporated in India which is a privately pooled investment vehicle which collects funds from sophisticated investors, whether Indian or foreign, for investing it in accordance with a defined investment policy for the benefit of its investors. As per paragraph 3(4) of the regulations, there are three categories of AIFs. Category I include infrastructure funds, angel funds, venture capital funds etc. Category II include funds like private equity funds, debt funds etc. and Category III includes funds which give returns under a short period of time like hedge funds. The latest guidelines by the RBI bring the following changes: 1. Investment Restriction The guidelines prohibit REs from investing in any scheme of the AIFs which has downstream investments in a ‘debtor company of the RE’. Downstream investments, though not defined in these guidelines, have been defined under Rule 23 Explanation (g) of the Foreign Exchange Management (Non-Debt Instrument) Rules, 2019 as investment made by an Indian entity which has total foreign investment in it, or an Investment Vehicle in the capital instruments or the capital, as the case may be, of another Indian entity. The circular is unfavourable for REs with genuine investments in these AIFs, and due to strict timelines, there is a high probability that these REs will struggle to liquidate their investments. 2. Liquidation time Moreover, if in case, the RE has already invested in an AIF scheme and that AIF later makes a downstream investment in the debtor company of the RE then the RE has to liquidate its investments in such AIF scheme within 30 days. Additionally, should the RE already have invested in an AIF scheme, the 30-day timeframe will start on the date of issuance of circular i.e. 19 December 2023. The guidelines also lay out that the REs have to make 100 percent provision on such investments if they are unable to comply with the stipulated timelines. These regulations strengthen transparency and compliance through clear definitions and timeframes, but also raises concerns about administrative burden, exit challenges, and potential unintended consequences like decreased RE participation and concentration risk. 3. Priority Distribution Model The directions also provide that investment by REs in the subordinated units of any AIF scheme with a ‘priority distribution model’ will be subject to a full deduction from RE’s capital funds. The explanation of this clause provides that ‘priority distribution model’ shall have the same meaning as in the circular issued by SEBI. According to paragraph 3 of the circular it means AIF schemes that use a waterfall distribution model suffer a share loss relative to other investor classes or unit holders that is greater than pro rata to their investment in the AIF because the latter has priority in distribution over the former. While transparency and risk mitigation improve, REs face limited options and AIFs with these models may struggle to attract investors. EVERGREENING OF LOANS The RBI in its circular mentioned that the guidelines have been issued in order to deal with the problem of REs ‘evergreening’ loans through the AIF route. The similar issue was highlighted and informed by the SEBI to the RBI last year. In simple words, evergreen loans mean loans that never end. Evergreening of loans imply instances when REs provide the borrower another loan through AIF as an investment vehicle in order to repay the previous in default debt. Then, in order to demonstrate a low percentage of non-performing assets on their books, REs turn to these loans. The REs do so because once classified as such, they will have to provide for losses, which will in turn reduce profits. It has the potential to mislead about the profitability and asset quality of banks and to postpone the identification and resolution of stressed assets. However, the circular is unclear about whether AIFs in the Debtor Companies are pursuing this evergreening through fresh debt or equity infusion. Consequently, the circular refers to “investments” without making a distinction between debt and equity infusion. DECIPHERING THE GUIDELINES: UNVEILING KEY CONCERNS It is pertinent to highlight that SEBI, through paragraph 11 of the MC-AIF, has already imposed a restriction on arrangements incorporating priority distributions. Consequently, this broad prohibition by the RBI has the potential to negatively affect REs’ capacity to engage with AIFs that provide risk-adjusted returns for diverse groups of investors via various unit classes. Additionally, the RBI Circular appears to be at odds with the inherent characteristics of AIFs. AIFs (Category I and Category II) are legally structured as privately pooled blind investment vehicles, characterized by a close-ended nature. AIF investors typically lack visibility into the AIFs’ investments and lack the right to freely redeem their units due to the highly illiquid nature of the AIF’s investments. Moreover, any transfer of AIF units necessitates explicit consent from the investment manager of the AIFs. In contrast, the RBI Circular mandates regulated entities to liquidate their investments in AIFs with downstream investments in debtor companies within 30 days. Assuming consent from the investment manager for the transfer, regulated entities may encounter challenges in finding buyers in the market, given
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