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Operational Risk Assessment for NBFCs : Understanding The Basics

Simrat Singh | finserv@vinodkothari.com 

Operational risk, as defined by the Basel framework, refers to the possibility that a financial institution’s routine operations may be disrupted due to failures in processes, systems, people, or external events. While historically treated as secondary to credit and market risk, it has increasingly become a central focus of risk management, particularly for institutions with complex operations, heavy technology dependence, extensive outsourcing, and stringent regulatory obligations. Reflecting this shift, the RBI’s 2024 Guidance Note on Operational Risk Management and Resilience expands its expectations for operational risk management to all NBFCs. 

Having previously discussed the guidance note (refer here), this article now explains the fundamentals of operational risk assessment and outlines its process.

Operational Risk Management

Operational risk poses unique challenges because many of the events that cause losses arise from internal factors, making them difficult to generalise or predict. Large operational losses are often viewed as rare, which can make it difficult to get sustained management attention on the steady, routine work required to identify issues and track trends1. Operational risks typically stem from people, processes, systems and external events, ironically, the same resources essential for running the business. Unlike credit and market risk which are modelled and hedged, operational risks are often idiosyncratic, event-driven and subject to human, process and system failure.

Relevance For Financial Institutions

Financial institutions operate with complex processes, large transaction volumes, strict regulatory reporting requirements and often heavy dependence on technology, outsourcing arrangements and third-party service providers. Because of this, operational failures, such as system glitches, fraud, compliance breaches or breakdowns in business continuity, can result in substantial financial losses, regulatory sanctions, reputational harm and other disruptions to business operations. 

Given these risks, regulators have placed growing emphasis on the measurement and management of operational risk. Based on our experience, RBI has frequently raised queries regarding the operational risk frameworks of NBFCs during its supervisory inspections. Under Basel II, for instance, banks using the Advanced Measurement Approach were required to maintain strong, demonstrable operational risk management systems. Recognising the importance of operational risk, the Bank of England’s FSA0732 report, which is applicable on banks and large investment firms, requires firms to record the top ten operational risk loss events for each reporting year. This provides a clear view of what went wrong, where it occurred and the scale of the financial impact.

Operational Risk Assessment Process

In its guidance note for operational risk, RBI at many places underscored the importance for risk assessment. One such example is given below:

Principle 6: Senior Management should ensure the comprehensive identification and assessment of the Operational Risk inherent in all material products, activities, processes and systems to make sure the inherent risks and incentives are well understood. Both internal and external threats and potential failures in people, processes and systems should be assessed promptly and on an ongoing basis. Assessment of vulnerabilities in critical operations should be done in a proactive and prompt manner. All the resulting risks should be managed in accordance with operational resilience approach.

6.1 Risk identification and assessment are fundamental characteristics of an effective Operational Risk Management system, and directly contribute to operational resilience capabilities. Effective risk identification considers both internal and external factors. Sound risk assessment allows an RE to better understand its risk profile and allocate risk management resources and strategies most effectively.

Figure 1: Operational Risk Assessment Process

Risk identification

Risk identification means figuring out what exactly you need to assess. It involves recognising the different risk sources and risk events that may disrupt your business. A risk source is the underlying cause, something that has the potential to create a problem. A risk event is when that problem actually occurs. For example, a weak password is a risk source, while a data breach caused by that weak password is the risk event. 

As per the RBI’s Guidance Note, REs are expected to take a comprehensive view of their entire “risk universe”. This means identifying all categories of risks, traditional or emerging, that could potentially affect their operations. These may include insurance risk, climate-related risk, fourth- and fifth-party risks, geopolitical risk, AML and corruption risk, legal and compliance risks, and many others. The underlying expectation is simple: an RE should systematically identify everything that can go wrong within its business model, processes, people, systems, and external dependencies, and ensure that no material source of risk is overlooked.

There are many ways to identify risks. You may use questionnaires, self-assessments by business or functional heads, workshops with staff involved in risk management, or you may review past failures within the company. Industry reports, experiences of peers, and linking organisational goals to potential obstacles can also reveal important risks. You can even look at upcoming strategic initiatives and think ahead about the risks that may arise when these changes are implemented.

Every organisation has its own risk profile. A lender may worry about borrowers not repaying, untrained staff, biases in an AI underwriting model, IT system failures, employee fraud, or suppliers not delivering on time. These risks should be recorded in a risk register, but it is important that this register reflects your business. A company offering only physical loans may not face digital lending risks, and should not simply copy any generic list. The goal is to identify risks that genuinely matter to your day-to-day operations.

Assessment

Once you know which risks matter, the next step is to assess each of them. For every risk, ask yourself two basic questions: 

  1. What is the likelihood of this risk actually happening? This is simply the chance that the event might occur; You may assign parameters to determine the likelihood – for eg if the risk event is almost certain to occur in the next 1 year or is it likely to occur or it will occur only in remote situations?

Figure 2: Illustrative likelihood assessment criterias

  1. If it does happen, what impact will it have on my organisation? Will it hurt my reputation? Lead to financial loss? Negative feedback from customers? Cause a data leak? One can record the impact of the risk as High, medium or low based on its gravity

Figure 3: Illustrative impact assessment of risks

These two questions help you understand how serious the risk is inherently (inherent risk level) i.e, before considering whether you have any controls in place. Note that at this stage, you’re only interested in the natural level of risk that exists ignoring any controls you might already have. 

Evaluating Controls

Once the inherent risks are understood, the next step is to look at how these risks are currently being managed. These risk-reducing efforts are your controls or mitigation measures. Controls are simply the actions, checks, or processes already in place to lower the likelihood or impact of a risk. For example: Is your underwriting model checked for bias? Are board committees meeting regularly? Do you have proper maker–checker checks in your V-CIP process? Controls can take many forms such as policies, procedures, tools, system checks, reviews, or even day-to-day practices followed by employees. In essence, a control is any measure that maintains or modifies risk and helps the organisation manage it more effectively. 

Residual Risk

After evaluating the controls, you can determine the residual risk i.e. the level of risk that remains even after your mitigation measures have been applied. Residual risk shows whether the remaining exposure is acceptable or whether additional controls are needed. By definition, residual risk can never be higher than inherent risk. Generally, residual risk can be interpreted as follows:

  • Low Residual Risk: When the effectiveness of internal controls fully covers or even exceeds the inherent risk;
  • Medium Residual Risk: When controls reduce most of the risk, leaving only a small gap;
  • High Residual Risk: When controls address only part of the risk and a significant gap still remains;
CategoryRisk SourceRisk eventRoot causeLikelihoodConsequenceLevel of inherent riskControl EffectivenessLevel of Residual Risk
People RiskEmployees / StaffEmployee fraud, misappropriation, or collusionWeak internal controls, poor background checksHighly LikelyMediumHighWeakHIGH
Information Technology & Cyber RiskIT Infrastructure / SystemsSystem downtime or core platform failureServer outage, inadequate IT resiliencePossibleLowLowStrongLOW
Process & Internal Control RiskOnboarding / KYC ProcessesNon-compliance with KYC or onboarding proceduresInadequate verification, manual errorsPossibleHighHighAdequateMEDIUM
Legal & Compliance RiskOutsourcing / LSP ArrangementsNon-compliance in outsourcing / LSP arrangementsWeak SLA oversight, inadequate due diligenceUnlikelyLowLowAdequateLOW
External Fraud RiskBorrowers / External PartiesBorrower fraud – identity theft, fake borrowers, or collusionForged documents, weak KYCPossibleLowLowStrongLOW
Model / Automation / Reporting RiskData Aggregation / SystemsFailure in data aggregation across systems for regulatory returnsSystem inconsistencies, poor data governanceHighly LikelyMediumHighStrongLOW
Reputation Risk / Customer ExperienceCustomer Communication / Sales PracticesMiscommunication of terms or conditions to customersPoor training, unclear communication scriptsPossibleMediumMediumWeakMEDIUM

Figure 5: An illustrative Snapshot of Operational Risk Assessment

Understanding residual risk helps decide where further action is required and where the organisation may still be vulnerable.

Conclusion

The goal, therefore, is to move away from a simple “tick-box” approach and make the operational risk assessment truly tailored to the organisation. For ML and above NBFCs, the ICAAP requirement to set aside capital for operational risk is useful, but it covers only a narrow part of what operational risk really involves. A comprehensive assessment goes much further by examining the strength of the entity’s internal controls and how effectively they manage real-world risks. If the residual risk exceeds the organisation’s tolerance level, it should trigger a closer look at those controls and prompt corrective action. Ultimately, the focus should be on building a risk framework that is meaningful, proactive, and aligned with how the organisation actually operates. The ultimate goal is therefore to develop ‘operational resilience’ which as per Bank of England3 is the ability of firms and the financial sector as a whole to prevent, adapt, respond to, recover from, and learn from operational disruptions.

Our other resources on risk management:

  1. Analysing Banking Risk: World Bank ↩︎
  2. FSA073: Instruction ↩︎
  3. Operational resilience of the financial sector: Bank of England ↩︎

Referral or Representation? The Fine Line Between LSP, DSA and Referral Partner

Simrat Singh & Sakshi Patil | finserv@vinodkothari.com

India’s lending landscape is evolving from traditional, branch-led lending to digital and now “phygital” models, involving multiple intermediaries connecting borrowers and lenders. For regulated entities (REs), three different terms referring to loan intermediaries are commonly seen: Lending Service Providers (LSPs), Direct Selling Agents (DSAs) and Referral Partners. 

At first glance, these roles may appear similar since all “bring in business.” But as far as the RBI is concerned, the difference determines how much regulatory oversight the lender must exercise over these participants. This article attempts to answer who’s who in this lending chain, and more importantly, where a simple referral ends and a regulated lending function begins.

The Lending Trio: LSPs, DSAs and Referral Partners

LSPs: The digital lending backbone

In the digital lending framework, the most central participant is the LSP who are engaged by the REs to carry out some functions of RE in connection with its functions on digital platforms. These LSPs may be engaged in customer acquisition, underwriting support, recovery of loan, etc. The RBI’s Digital Lending Directions, 2025 define an LSP as:

An agent of a RE (including another RE) who carries out one or more of the RE’s digital lending functions, or part thereof, in customer acquisition, services incidental to underwriting and pricing, servicing, monitoring, or recovery of specific loans or loan portfolios on behalf of the RE, in conformity with the extant outsourcing guidelines issued by the Reserve Bank.”

The emphasis on the term “agent” is crucial since being an agent becomes a precondition to becoming an LSP. An agent is a person employed to act for another; to represent another in dealings with third persons within the overall authority granted and can legally bind the principal by their actions (more discussion on agency later). This distinguishes an agent from a mere vendor or service provider who delivers a contracted service but has no authority to affect the principal’s relationship with third parties and neither is subjected to a degree of control from the principal.

DSAs: The traditional middle ground

DSAs, though not formally defined by the RBI, their appointment, conduct and RE’s oversight on them is governed by Annex XIII of the SBR Directions (Instructions on Managing Risks and Code of Conduct in Outsourcing of Financial Services by NBFCs) for NBFCs and by Guidelines on Managing Risks and Code of Conduct in Outsourcing of Financial Services by Banks for Banks. DSAs operate largely in physical or “phygital” lending models, focusing on loan sourcing. They represent the lender while dealing with potential borrowers. However, their functions are narrower than those of an LSP. A DSA’s role typically ends with lead generation and preliminary documentation, without involvement in underwriting, servicing or recovery. While the DSA is an agent, it plays a more limited role in the lending value chain and has minimal borrower-facing obligations post origination.

Referral Partners: The nudge before negotiation

Referral Partners perform the most limited role. They simply share leads or basic borrower information with the lender and have no authority to represent or bind the lender. Their role is confined to referral i.e. the providing the first nudge to the lender. They are treated as independent contractors or service providers, not agents and operate under commercial referral agreements. The RE does not exercise control over their operations, nor is it responsible for their actions beyond the agreed referral activity. The distinction lies not in what they do (introducing borrowers) but in what they cannot do i.e. represent the lender or perform any of its lending functions.

Referral ≠ Representation: The Agency Test

The most important question then arises “How does one determine whether a person is an LSP, DSA, or a referral partner?”. All three may assist in borrower acquisition, but the answer might lie in distinguishing referring from representing. To be classified as an LSP (or even a DSA), the person must first be the agent of the RE, not just a vendor or service provider. The test of agency has been laid down in the Supreme Court’s decision in Bharti Cellular Ltd. v. Commissioner of Income Tax1. The Court, in para 8, observed that the existence of a principal–agent relationship depends on the following elements:

  1. The authority of one party to alter the legal relationship of the other with third parties;
  2. The degree of control exercised by the principal over the agent’s conduct (less than that over a servant, but more than over an independent contractor);
  3. The existence of a fiduciary relationship, where the agent acts on behalf of and under the guidance of the principal;
  4. The obligation to render accounts to the principal, and the entitlement to remuneration for services rendered.

Further, the Court clarified in para 9 that the substance of the relationship, not just its form, determines whether agency exists. If a person is neither authorised to affect the principal’s relationship with third parties nor under its control, and owes no fiduciary obligation, the person is not an agent, regardless of what the contract calls them. 

Similarly, in Bhopal Sugar Industries v. Sales Tax Officer2, the Supreme Court had observed that the mere word ‘agent’ or ‘agency’ is not sufficient to lead to the inference that parties intended the conferment of principal-agent status on each other. Mere formal description of a person as an agent is not conclusive to show existence of agency unless the parties intend it so hence, “the true relationship of the parties in such a case has to be gathered from the nature of the contract, its terms and conditions, and the terminology used by the parties is not decisive of the said relationship.”

On the aspect of supervision and control, the Supreme Court in para 40 of the Bharti Cellular ruling stated:

An independent contractor is free from control on the part of his employer, and is only subject to the terms of his contract. But an agent is not completely free from control, and the relationship to the extent of tasks entrusted by the principal to the agent are fiduciary….The distinction is that independent contractors work for themselves, even when they are employed for the purpose of creating contractual relations with the third persons. An independent contractor is not required to render accounts of the business, as it belongs to him and not his employee.

In lending transactions, therefore, the relevant considerations to determine whether an agency exists or not may be:

  1. Does the agency have the authority, under a contract with the principal, to represent the principal to create any relationship with the borrower?;
  2. Does the agency have the authority to approach potential borrowers, representing that the agency can source a loan from the RE?;
  3. What is the role of the agency in the loan contract – is the loan contract established between the lender and the borrower through the agent?;
  4. Does the agency agreement control/regulate the manner of the agent’s dealings with the borrowers?;
  5. Effectively, is the agency the interface between the RE and the borrowers?

Paanwala and the Poster: Not everyone who sells a loan lead is an LSP

To illustrate the difference between LSP/DSA and Referral Partner, consider a simple example. You stop at your neighbourhood paanwala for your regular paan or pack of mints. Between the faded ads for mobile recharges and UPI QR codes, one new poster catches your eye “Need a personal loan? Look No Further ! Fast approvals”. Curious, you ask if the shopkeeper has joined the finance world. Smiling, he replies, “Arre nahi sahib, I just share numbers! You give me your name and phone number, I’ll send it to my guy. If your loan gets approved, I get a small tip!” No exchange of KYC documents, no app, no credit score. Now, does this make the paanwala an LSP under the Digital Lending Directions? He may appear as performing a part of the customer acquisition function of the lender so should he now comply with outsourcing norms, data protection protocols and grievance redressal requirements? Of course not.

The paanwala is a pure referral partner. His role ends with introducing a potential borrower to a contact connected to a lender. He does not represent the lender, verify or collect documents, underwrite, service, or recover loans, nor can he legally bind the lender through his actions. Mere referral, without agency and without performing a lending function, does not make one an LSP. Passing a phone number over a cup of chai does not amount to digital intermediation.

BasisReferral PartnerLSP
Scope of activityLimited to sharing leads with the lenderPerforms one or more of the lenders functions w.r.t in customer acquisition, services incidental to underwriting and pricing, servicing, monitoring, recovery
Access to prospective customer’s information and documentsOnly basic contact information necessary for the lender to approach the customer for the loan is sharedTo the extent relevant for carrying out its functions
RepresentationDoes not represent the RERepresents the RE
Agency & PrincipalNot an agentAppointed as an agent
DLGCannot provideCan provide (in case of Digital Lending and Co-lending)
Applicability of Outsourcing GuidelinesNot applicableApplicable
Mandatory due diligence  before appointmentNot applicableApplicable
Appointment of GRONo such requirementLSP having interface with borrower needs to appoint a GRO
Right to auditNo right of RERE has a right
Disclosure on the website of the lenderNot applicableApplicable

Table 1: Distinction between Referral Partner and LSP

Conclusion

As digital lending continues to expand in India, ensuring that every intermediary’s role aligns with its true legal character is essential. The key in determining the true nature of the relationship would ultimately rest on the contractual terms that must reflect the true nature of the relationship. Misclassifying these entities can expose lenders to compliance risks under RBI’s outsourcing and digital lending guidelines.

  1. [2024] 2 S.C.R. 1001 : 2024 INSC 148 ↩︎
  2. 1977 AIR 1275 ↩︎

Our resources on the same:

  1. Lending Service Providers for digital lenders: Distinguishing agency contracts and principal-to-principal contracts
  2. Principles of Neutrality for Multi-Lender Platforms
  3. Multi-lender LSPs – Compliance & Considerations
  4. Outsourcing (Direct Selling Agent) v. Business Correspondent route
  5. Resources on Digital Lending

The Great Consolidation: RBI’s subtle shifts; big impacts on NBFCs

Team Finserv | finserv@vinodkothari.com

In its recent consolidation exercise of the Master Directions applicable to NBFCs, the RBI has done a lot of clause shifting, reshuffling, reorganisation, replication for different regulated entities, pruning of redundancies, etc. However, there are certain places where subtle changes or glimpses of mindset may have a lot of impact on NBFCs. Here are some:

Read more

Old Rules, New Book: RBI consolidates Regulatory Framework

Team Finserv | finserv@vinodkothari.com


Read our related resources:

Expected to bleed: ECL framework to cause ₹60,000 Cr. hole to Bank Profits

Dayita Kanodia and Chirag Agarwal | finserv@vinodkothari.com

The proposed ECL framework marks a major regulatory shift for India’s banking sector; it is long overdue, and therefore, there is no case that the RBI should have deferred it further. However, it comes coupled with regulatory floors for provisions, which would cause a major increase in provisioning requirements over the present requirements. Our assessment, on a very conservative basis, is that the first hit to Bank P/Ls will be at least Rs 60000 crores in the aggregate. 

RBI came up with a draft framework on ECL pursuant to the Statement on Developmental and Regulatory Policies, wherein it indicated its intention to replace the extant framework based on incurred loss with an ECL approach. The highlights can be accessed here.

A major impact that the draft directions will have on the Banking sector is the need to maintain increased provisioning pursuant to a shift from an incurred loss framework to the ECL framework. Under the existing framework, banks make provisions only after a loss has been incurred, i.e., when loans actually turn non-performing. The proposed ECL model, however, requires banks to anticipate potential credit losses and set aside provisions for such anticipated losses. 

Banks presently classify an asset as SMA1 when it hits 30 DPD, and SMA2 when it turns 60. Both these, however, are standard assets, which currently call for 0.4% provision. Under ECL norms, both these will be treated as Stage 2 assets, which calls for a lifetime probability of loss, with a regulatory floor of 5%. Thus, the differential provision here becomes 4.6%.

Once an asset turns NPA, the present regulatory requirement is a 15% provision; the ECL framework puts these assets under Stage 3, where the regulatory minimum provision, depending on the collateral and ageing, may range from 25% to 100%. Our Table below gives more granular comparison.

Type of assetAsset classificationExisting requirement Proposed requirementDifference
Farm Credit, Loan to Small and Micro EnterprisesSMA 00.25%0.25%
SMA 10.25%5%4.75%
SMA 20.25%5%4.75%
NPA15%25%-100% based on Vintage10%-85% based on Vintage
Commercial real estate loansSMA 01%Construction Phase -1.25%

Operational Phase – 1%
Construction Phase -0.25%

Operational Phase – Nil
SMA 11%Construction Phase -1.8125%

Operational Phase – 1.5625%
Construction Phase -0.8125%

Operational Phase – 0.5625%
SMA 21%Construction Phase -1.8125%

Operational Phase – 1.5625%
Construction Phase -0.8125%

Operational Phase – 0.5625%
NPA15%25%-100% based on Vintage10%-85% based on Vintage
Secured retail loans, Corporate Loan, Loan to Medium EnterprisesSMA 00.4%0.4%
SMA 10.4%5%4.6%
SMA 20.4%5%4.6%
NPA15%25%-100% based on Vintage10%-85% based on Vintage
Home LoansSMA 00.25%0.40%0.15%
SMA 10.25%1.5%1.25%
SMA 20.25%1.5%1.25%
NPA15%10%-100% based on Vintage(-)5% – 85% based on Vintage
LAPSMA 00.4%0.4%
SMA 10.4%1.5%1.1%
SMA 20.4%1.5%1.1%
NPA15%10%-100% based on Vintage (-)5% – 85% based on Vintage
Unsecured Retail loanSMA 00.4%1%0.6%
SMA 10.4%5%4.6%
SMA 20.4%5%4.6%
NPA25%25%-100% based on Vintage0%-75% based on Vintage

The actual impact of such additional provisioning will be a hit of more than 3% to the profit of banks1. Based on the RBI Financial Stability Report of FY 24-252, the current level of SMA and NPA is estimated to be ₹3,78,000 crores (2%) and ₹4,28,000 crores (2.3%), respectively. 


Accordingly, an additional provision of approximately₹ 18,000 crores (4.6% of SMA volume) and ₹ 42,000 crores (10% of NPA volume) will be required for SMA and NPA respectively, leading to a total impact of at least ₹60,000 crores. This estimate has been arrived at by considering the % of NPAs and SMA-1 & SMA-2 portfolios of banks. The actual impact may be higher, as lot of loans may be unsecured, and may have ageing exceeding 1 year, in which case the differential provision may be higher.

It may be noted that while the draft directions allow Banks to add back the excess ECL provisioning to the CET 1 capital, it does not neutralize the immediate profitability impact, as the additional provisions would still flow through the profit and loss account.

How do we expect banks to smoothen this hit that may affect the FY 27-28 P/L statements? We hold the view that it will be prudent for banks, who have system capabilities, to estimate their ECL differential, and create an additional provision in FY 25-26, or do technical write-offs.

Other Resources

  1. The total Net profit of SCBs is ₹ 23.50 Lakh Crore for FY 24. (https://ddnews.gov.in/en/indian-scbs-post-record-net-profit-of-%E2%82%B923-50-lakh-crore-in-fy24-reduce-npas/ )
    ↩︎
  2.  Based on our rough estimate of the data available here: https://www.rbi.org.in/Scripts/PublicationReportDetails.aspx?UrlPage=&ID=1300 ↩︎

ECL Framework for Banks: Key Highlights

-Team Finserv (finserv@vinodkothari.com)

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Legal issues in factoring business in India

Originally by Nidhi Bothra (2011) | Updated by Simrat Singh | finserv@vinodkothari.com 

Credit Factoring or simply factoring is an asset backed means of financing (tripartite agreement between the buyer, seller and the factor), whereby the account receivables are assigned to a third party called factor for a discount, releasing the tied-up capital and providing financial accommodation to the Company. The origin of factoring goes back to the 14th century in England. Earlier, factoring was confined to textile and garment industries, but later was spread across various industries and markets. Factoring has been defined as:

“Credit factoring may be defined as a continuing legal relationship between a financial institution (the “factor”) and a business concern (the “client”) selling goods or providing services to trade customers (the “customers”) whereby the factor purchases the client’s book debts either without or with recourse to the client, and in relation thereto controls the credit extended to customers and administers the sales ledger.”

UNIDROIT Convention on International Factoring, 1988 defines factoring as follows:

“Factoring contract” means a contract concluded between one party (the supplier) and another party (the factor) pursuant to which:

  1. the supplier may or will assign to the factor receivables arising from contracts of sale of goods made between the supplier and its customers (debtors) other than those for the sale of goods bought primarily for their personal, family or household use;
  2. the factor is to perform at least two of the following functions:
    1. finance for the supplier, including loans and advance payments;
    2. maintenance of accounts (ledgering) relating to the receivables;
    3. collection of receivables;
    4. protection against default in payment by debtors;
  3. notice of the assignment of the receivables is to be given to debtors.

US accounting standard ASC 860-10-05-14 defines ‘factoring arrangements’ as:

Factoring arrangements are a means of discounting accounts receivable on a nonrecourse, notification basis. Accounts receivable in their entirety are sold outright, usually to a transferee (the factor) that assumes the full risk of collection, without recourse to the transferor in the event of a loss. Debtors are directed to send payments to the transferee

Though Europe provides largest volumes globally, factoring in Asia as well has been growing rapidly in the last few years. Global factoring volumes reached EURO 3.66 Trillion in 2024 (up 3.6% from the previous year)1. In Asia-Pacific, India was the fastest-growing market in the region, up 120% to EUR 38.2 billion.2

The purport of factoring is to assign the account receivables to be able to: 

  1. Instantly convert receivables into case, that enable the companies to have funds to finance the day to day operations of the company; 
  2. Helps in efficient collection of the receivables and protection against bad debts; 
  3. Outsourcing sales ledger administration and
  4. Availing credit protection for receivables.

Typically in a factoring transaction, a seller gets a prepayment limit from the factor, then enters into a transaction with the buyer and submits the invoice; notice to pay etc to the factor. The factor makes upfront payment to the seller, as a percentage of invoice value based on criteria, such as, quality of receivables, number and quality of the buyers and seller’s requirements (80% – 95% of invoice value) and maintains the sales ledger of the seller and collects payment from buyer. The balance payment is made to the seller, net of charges. The seller is not required to open an LC or a bank guarantee. 

The cost to the seller in factoring is the service fees, which is dependent on a) sales volume, b) number of customers, c) number of invoices and credit notes and d) degree of credit risk in the customer or the transaction. 

Factoring and Bill Discounting

There is a very thin line of difference between factoring and bill discounting. Bill discounting unlike factoring is always with recourse to the client, whereas factoring may be with recourse or without. Generally there is no notice of assignment given to the customer in case of bill discounting and collections are done by the assignor , unlike factoring, where debt collection is done by the factor. Factoring can be called a financing and servicing function, whereas, bill discounting function is purely financial. 

Types of Factoring

On the basis of geographical distribution 

  1. Domestic Factoring
    1. Sales bill factoring
    2. Purchase bill factoring
  2. International Factoring – As international trade continues to increase, international factoring is being accepted as vital to the financial needs of the exporters and is getting the necessary support from the government, specifically in the developing countries to stimulate this mode of funding.
    1. Export factoring – It is seen as an alternative to letter of credit, as the importers insist on trading in open account terms. Export factoring eases the credit and collection troubles in case of international sales and accelerates cashflows and provides liquidity in the business.

On the basis of credit risk protection

  • On recourse basis, wherein the factor can recover the amount from the seller, in case of non-payment of the amount to the factor. Thus, though the receivables have been assigned, the credit risk remains with the client.
  • On non-recourse basis also called old line factoring, wherein the risk of non-payment of invoices is borne by the factor. However, the factor only bears credit risk in such transactions. In case non-payment is due to any other reason other than financial incapacity, such as disputes over quality of goods, breach of contract, set-offs or fraud , the factor does not assume liability and the risk remains with the client. 

Other types:

  • Advance factoring: In case of advance factoring, the factor provides financial accommodation and non-financial services. The factor keeps a margin while funding, which is called the client’s equity and is payable on actual collection. 
  • Maturity factoring: Here, the factor makes payment on a due date. This sort of funding is resorted to by clients who are in need of non-financial services offered by the factors. 
  • Supplier guarantee factoring: Also known as drop shipment factoring. This sort of factoring is common where the client acts as a mediator between the supplier and the customer. 

Overview of factoring in India:

India’s factoring turnover in 2024 was around Euros 38,200 Million in total as compared to a total of Euros 3,894,631 million worldwide3 and the turnover over the last 7 years (2018-2024) has seen a tremendous growth; while that of Asia has risen 38% from 2018 to 2024 and is valued at Euros 3,894,631Million. 

Fig 1: Factoring volumes in India: Source: FCI Annual Review 2025

Some of the challenges faced by the factoring companies in India are a) there was no specific law for assignment of debt, b) there was no recovery forum available to the factoring NBFCs such as DRT or under Sarfaesi Act, c) Lack of access to information on credit worthiness and d) assignment of debt involves heavy stamp duty cost.

UNCITRAL laws on assignment

Article 2 of the United Nations Convention on the Assignment of Receivables in International Trade defines ‘Assignment’ as – 

“Assignment” means the transfer by agreement from one person (“assignor”) to another person (“assignee”) of all or part of or an undivided interest in the assignor’s contractual right to payment of a monetary sum (“receivable”) from a third person (“the debtor”). The creation of rights in receivables as security for indebtedness or other obligation is deemed to be a transfer;

The Factoring Regulation Act, 2011

In order to revive the business and render liquidity specifically to the small and medium enterprises, the Finance Minister, in the Parliament session held in March, 2011 had tabled a pilot bill to bring the factoring business in India under regulation. The Bill was passed as the Factoring Regulation Act, 2011

While the intent of the Act may be to stimulate the growth of factoring business in India, but a close look at the Act does not enumerate so. The Act is a regulation Act, but the need was for an Act to promote factoring and not so much to regulate. Some of the highlights of the Act are as mentioned below:

  • The name makes it unclear whether the Act is for regulating assignment; factoring or both. Further it should have been a regulation of factor’s’ and nor factor, to be more appropriate.
  • Section 2 (a) of the Act defines means transfer by agreement to a factor of an undivided interest, in whole or in part, in the receivables of an assignor due from a debtor…The definition talks about undivided interest to be assigned only and does not consider assignment of fractional interest within its ambit. This would mean that any assignment of fractional interest would not be covered under this definition. Further whether the assignment could be in terms of money, in terms of time or rate of interest is not clear from the definition.
  • The definition of receivables, in Section 2(p) of the Act includes futures receivables as well, which is in line with international laws.
  • Section 3(1) of the Act says – 

No Factor shall commence or carry on the factoring business unless it obtains a certificate of registration from the Reserve Bank to commence or carry on the factoring business under this Act.

The definition should have said no ‘person’ shall commence or carry on the factoring business rather than using the term factor. A person shall only become a factor after obtaining a certificate of registration from the Reserve Bank as the section suggests. However the section already terms such a person as a ‘factor’, making the definition circular.

  • Section 3(3) of the Act states every company carrying or commencing factoring business to be registered with RBI, and such companies would be classified as NBFCs and all the provisions applicable to NBFCs would be applicable here as well. Section 3(4) requires existing NBFCs to take a fresh certificate of registration, if they are principally engaged in the business of factoring. But the Act does not render clarity whether there would be a separate class of NBFCs carrying out factoring business.
  • Section 7(3) states that in case the receivables are encumbered to any creditor, the assignee shall pay the consideration for such assignment to the creditor to whom the receivables have been encumbered. In case of fixed charge created over assets, the provisions of this section are well thought, however in case of floating charges, this would render several difficulties for the assignor. Most companies have fixed and floating charges created over their assets, the assets on which floating charge is created are regularly rotated in business and are only crystallized in case of default or non-payment. If the company was to assign such assets it would be practically impossible for the assignee to identify which receivables are currently subject to the floating charge, and to whom the consideration ought to be paid. This uncertainty could discourage assignments, create disputes between secured creditors and assignees, and undermine the commercial utility of receivables financing.
  • Section 8 of the Act requires the notice of assignment to be given to the debtor, without which the assignee shall not be entitled to demand payment of the receivables from the debtor. However Section 7(2) of the Act, makes Section 8 redundant, as it states that on execution of agreement in writing for assignment of receivables, the assignee shall have ‘absolute right to recover such receivable and exercise all the rights and remedies of the assignor whether by way of damages or otherwise, or whether notice of assignment as provided in sub-section (1) of section 8 is given or not.’ This is not in line with the proviso to Section 130 (1) of the Transfer of Property Act, 1882 which mandates that the assignee will be able to recover or enforce the debt when the debtor is made party to the transfer or has received express notice of such an assignment.
  • Section 8, 9 and 10 provide for the requirements of notice of assignment. The intent of Section 11 seems that even in case notice of assignment is not provided the debtor would not be absolved from his duties to make payment. However the section is worded as ‘till notice is served on the debtor, the rights and obligations in its contract with the assignor, shall remain unchanged, excepting the change of the party to whom the receivables are assigned which may become entitled to receive the payment of the receivable from the debtor;’ this means whether or not notice for assignment is provided the rights and obligations of the debtor towards the assignee would remain unaffected. If so was the intent of the Section, then there was no need for any notice of assignment to be given to the debtor, as by the virtue of this section read with section 7(2), the assignee would have all the right on receivables as that of the assignor.
  • The UNCITRAL model law on assignment requires that notification of assignment of debt is to be given by either the assignor or the assignee, the assignee may not retain more than the value of its right in the receivable and notification of the assignment or a payment instruction is effective when received by the debtor. However, until the debtor receives notification of the assignment, the debtor is entitled to be discharged by paying in accordance with the original contract.
  • Import factoring is not permitted as per Section 31(1) of the Act.
  • Further recourse to the assignor is not permitted under the Act. 
  • The proposed law provides for compulsory registration of every transaction of assignment of receivable with the Central Registry to be set up under the Sarfaesi Act within a period of 30 days. 

Factoring or financing transaction?

In Major’s Furniture Mart, Inc v. Castle Credit Corporation4, the question in consideration in the case was whether the transaction was a true sale or mere financing. Major’s was into retail sale of furniture and Castle into the business of financing such dealers as Major’s. Under an agreement, Major’s had sold its receivables to Castle, with full recourse against Major’s. The Court held the assignment of receivables by the furniture seller to the factoring company a case of financing and not assignment, as the factor had full recourse on the seller and the factor only paid a part of the total debt factored by him.

In another case of Endico Potatoes Inc. and others vs. CIT Group/Factoring Inc.5, in case of a factoring transaction, the court opined:

“Resolution of whether the “contemporaneous transfer,” as CIT describes Merberg’s assignment of accounts receivable to CIT and CIT’s loan advances to Merberg, constitutes a purchase for value or whether the exchange provides CIT with no more than a security interest, depends on the substance of the relationship between CIT and Merberg, and not simply the label attached to the transaction. In determining the substance of the transaction, the Court may look to a number of factors, including the right of the creditor to recover from the debtor any deficiency if the assets assigned are not sufficient to satisfy the debt, the effect on the creditor’s right to the assets assigned if the debtor were to pay the debt from independent funds, whether the debtor has a right to any funds recovered from the sale of assets above that necessary to satisfy the debt, and whether the assignment itself reduces the debt. 

Major’s Furniture Mart, Inc. v. Castle Credit Corp.6, Levin v. City Trust Co.7, Hassett v. Sprague Electric Co.8, In re Evergreen Valley Resort, Inc.9. The root of all of these factors is the transfer of risk. Where the lender has purchased the accounts receivable, the borrower’s debt is extinguished and the lender’s risk with regard to the performance of the accounts is direct, that is, the lender and not the borrower bears the risk of non-performance by the account debtor. If the lender holds only a security interest, however, the lender’s risk is derivative or secondary, that is, the borrower remains liable for the debt and bears the risk of non-payment by the account debtor, while the lender only bears the risk that the account debtor’s non-payment will leave the borrower unable to satisfy the loan.

In CF Motor Freight v. Schwartz10, the court recharacterized what was labeled a factoring arrangement as a secured loan. The agreement expressly stated it was a “Factoring Agreement,” and each receivable was stamped as “sold and assigned.” The court even acknowledged that factoring typically involves the purchase of accounts receivable. Under the arrangement, the transferee advanced 86% of the invoice value upfront, with an additional 10% payable if and when collections were made. However, if a receivable was not collected within 60 days, the transferee could demand repayment from the transferor. Because of this recourse provision, the court concluded that the transferee had not truly assumed the risks associated with ownership and therefore treated the arrangement as a secured loan.

In Home Bond Co. v. McChesney11, the US Supreme Court held that certain contracts labeled as “purchases” of receivables were in fact loans secured by receivables, because the transferor retained the risk of non-payment (through repurchase obligations and collection duties), and the transferee’s “service charges” were essentially disguised interest. The ratio being that a transaction is a loan, not a sale, when the transferor bears the risks and costs of collection, even if the contract is formally styled as a sale. In Taylor v. Daynes12, the Utah Supreme Court stated that whether a sale has occurred depends not on labels or form but on whether the risks and benefits of ownership have been transferred to the transferee.

Another aspect considered by courts to determine whether it is a case of sale of receivables is alienability i.e. ability to transfer/resell for a profit. When an account is transferred, if the transferee has a right to alienate the acquired account, it is a case of sale and not financing. In Nickey Gregory Co. v. AgriCap, LLC, the court treated the transaction as a secured loan, partly because the transferee’s rights were closer to a lender’s,  it did not have full indicia of ownership, including unrestricted alienability. 

In a more recent case of Re: Qualia Clinical Service, Inc v. Inova Capital Funding, LLC; Inova Capital Funding, Inc, the bankruptcy court found that the invoice purchase agreement was clearly and unambiguously a financing arrangement. The court made that finding on the terms of the agreement itself. In particular, the court noted that the recourse provisions contained in section 7.02 of the agreement, which shift all collection risks to Qualia.

“….. “The question for the court then is whether the Nature of the recourse, and the true nature of the transaction, are such that the legal rights and economic consequences of the agreement bear a greater similarity to a financing transaction or to a sale.”

This agreement, which shifts all risk to Qualia, is a disguised loan rather than a true sale. Where the “seller” retains “virtually all of the risk of noncollection,” the transaction cannot properly be considered a true sale. 

If the assignment alone did not reduce the obligation of the assignor towards the assignee and the assignee at any given point of time, directly demand the money from the assignor, there is no transfer of risk. If the primary risk of customer’s non-payment remained with the assignor, then it cannot qualify as a true sale.

Credit insurance and factoring:

Insurers are allowed to offer Trade Credit Insurance which provides protection to suppliers against the risk of non-payment for goods and services by buyers. Typically, it covers a portfolio of buyers and indemnifies the insured for an agreed percentage of the invoice value that remains unpaid. As per IRDAI (Trade Credit Insurance) Guidelines, 2021 (‘Guidelines’), the scope of cover may include commercial risks such as insolvency or protracted default of the buyer, as well as rejection of goods (either after delivery or before shipment, in cases where the goods were exclusively manufactured for the buyer). It may also extend to political risks, such as changes in law, war, or related disruptions; however, this protection is applicable only for buyers located outside India and in countries agreed upon under the policy.

The risks covered under the Guidelines are not exhaustive, and insurers may extend coverage to additional risks, provided these have a direct nexus with the delivery of goods or services. As per the Guidelines, Trade credit insurance policy may be issued to the following:

  1. Seller / Supplier of goods or services; 
  2. Factoring company; 
  3. Bank / Financial Institution, engaged in Trade Finance

As per the Guidelines, insurers are permitted to extend coverage for transactions involving factoring, reverse factoring on the TreDS platform (as clarified under the IRDAI circular dated 9 October 2023), and bill discounting. Lastly, insurance is available only in case of non-recourse factoring.

  1. FCI Annual Review 2025 ↩︎
  2. FCI Annual Review 2025 ↩︎
  3. Data from Factors Chain International http://www.factors-chain.com/?p=ich&uli=AMGATE_7101-2_1_TICH_L1403780046 ↩︎
  4. 602 F.2d 538; 1979 U.S. App. LEXIS 13808; 26 U.C.C. Rep ↩︎
  5. SECOND CIRCUIT Nos. 1751, 1961 Decided: October 2, 1995, ↩︎
  6. Supra ↩︎
  7. 482 F.2d 937, 940 (2d Cir. 1973) ↩︎
  8. 30 B.R. 642, 647-48 (Bankr. S.D.N.Y. 1983) ↩︎
  9. 23 B.R. 659, 660-61 (Bankr. D. Me. 1982) ↩︎
  10. 215 B.R. 947, 951 (Bankr. E.D. Pa. 1997) ↩︎
  11. 239 U.S. 568 (1916) ↩︎
  12. 118 Utah 61 (Utah 1950) ↩︎

See our other resources on Factoring:

  1. Transfer of Factoring receivables exempted from MHP
  2. PPT on Basics of Factoring
  3. India Factoring Report 2023
  4. Basics of Factoring in India
  5. Money advanced by factor in factoring – a loan or not?
  6. India Factoring Report 2013
  7. Export Factoring
  8. Fractured Factoring: Amendments may give a push to a potent trade finance solution

Budget, Bazaars and Bank Rate: Understanding inflation, GDP, Repo Rate etc.

Access the Youtube video at https://www.youtube.com/watch?v=EXH6Nt1fXdg

See our other resources on this topic:

  1. https://vinodkothari.com/2025/02/union-budget-2025/
  2. https://vinodkothari.com/2022/08/hike-in-repo-rate-how-to-modify-loan-instalments/
  3. https://vinodkothari.com/2023/08/rbi-streamlines-floating-rate-reset-for-emi-based-personal-loans/

Overview of RBI (Project Finance) Directions, 2025

Link to the YouTube video – https://www.youtube.com/watch?v=uCbe66Amk9w

Our article on the RBI (Project Finance) Directions, 2025

Balancing flexibility and discipline: Analysis of RBI’s Project Finance Directions, 2025

Aanchal Kaur Nagpal, Senior Manager and Simrat Singh, Senior Executive | finserv@vinodkothari.con 

Project loans, used to finance large infrastructure and industrial ventures like highways, power plants and railways etc., are fundamentally different from regular business or personal loans. Unlike typical loans that are repaid from either the borrower’s existing operations and  balance sheet (in case of the former) or the borrower’s own credit worthiness (in case of the latter), project loans are forward-looking: they primarily rely on cash flows of the project, generated only after the project becomes operational. Because of this, delays in project completion due to various factors such as land acquisition issues and regulatory delays which may be beyond the control of the developer  are common. These may arise from. Such delays, though being routine and not necessarily indicating borrower’s stress, triggered adverse asset classifications under the existing rules. 

When the RBI introduced its 2019 prudential framework to enable early recognition and time bound resolution of stressed assets, it excluded such project loans from its scope (see para 25). As a result, these continued to be governed by old norms, specifically para 4.2.5 of the 2015 IRCAP and later, para 3 of Annex III under the RBI SBR Directions. However, these norms  did not reflect the unique risks faced by project finance especially during the construction phase.

To address these issues, the RBI released the Draft Project Finance Directions in May 2024, proposing a dedicated regulatory framework tailored to project loans. The Project Finance Directions (‘Directions’) have been issued on 19 June, 2025. This article explores the need for such a framework, the changes brought in the regulatory regime, and their impact on borrowers and lenders.

Project finance vs other kinds of finance

In corporate lending, credit decisions are primarily based on the borrower’s balance sheet strength, existing cash flows and overall financial health. where the lender primarily  assumes credit risk

In contrast, in project finance, repayments as well as the primary security depend primarily on the successful implementation and projected cash flows of a specific project, rather than the borrower’s overall financial position. Accordingly, the lender takes two different risks: 

  1. Project risk i.e. the risk that the  project may face commencement delays due to factors like regulatory bottlenecks, land acquisition issues or construction delays and;
  2. Credit risk i.e. the risk of inadequacy of cashflows to make the scheduled contractual payouts. 

Importantly, in project finance, delays in cashflows often happen due to non-credit factors linked to project execution, mainly project delays. As a result, automatic downgrading of classification due to any project delay may not only fail to provide a true risk profile of the loan but also cause increased provisioning burden on the lender. 

Overview of the Directions

The Directions deal with the following broad aspects: 

  1. Classification of projects and project finance;
  2. Prudential requirements for extending project loans including:
    1. Provisioning requirements;
    2. Conditions for sanction, disbursement and monitoring.
  3. Resolution and restructuring of project loans
    1. Either due to stress;
    2. Extension/ delays in DCCO.

Applicability

Classification of ‘project’ and ‘project finance’

Under the Directions, a project is defined as to involve capital expenditure for the creation, expansion or upgradation of tangible assets or facilities, with the expectation of long-term cash flow benefits [see para 9(l)], with the following features: 

Project finance is a method of funding where the project’s cash flows/ revenue own revenues are the primary source of repayment as well as the and security for the loan [see para 9(m)].

  • It can be:
    • Greenfield (new project);
    • Brownfield (existing project enhancement).

To qualify as project finance under the Directions:

Note: Loan terms can differ across lenders if agreed by all parties

The earlier definition of project finance under the SBR Directions was generic and vague, referring merely to a “project loan” as any term loan extended for setting up an economic venture. The Directions have provided more clarity on what would be considered as project finance and have linked it to the definition of project finance under the Basel Framework, while also providing a quantitative threshold of 51%. 

Project finance envisages the lender’s exposure in a project, which is typically in the process of being set up. The repayment will be from the project cashflow i.e. the payout structure is connected with the commencement of commercial operations of the project. The lending is based on the projected cash flows of the project rather than the balance sheet of the developer. It is distinct from asset finance, where loans are backed by existing assets generating income. Further, project finance differs from a working capital loan/general corporate purpose loan where the latter is towards financing the working capital needs of the developer entity based on the overall health of the entity.

Would it mean that project loans cannot have any other collateral and must solely rely on the project as the security? The answer is negative since the threshold specified allows to have other/ additional collateral, say, personal guarantee of the developer etc., however, the primary security shall be the project cashflows.

Other important terminology

DCCO 

The Date of Commencement of Commercial Operations (DCCO) is a key milestone in project finance, marking the transition from construction to operational phase when a project begins to generate revenue.The Directions recognises three forms of DCCO. [see Para 9(e) to (m)]

CRE and its sub-category CRE-RH

Defined in Directions on Classification of Exposures as Commercial Real Estate Exposures, CRE refers to loans or exposures where repayment primarily depends on income generated by the real estate asset itself. This typically includes office spaces, malls, warehouses, hotels and multi-family housing complexes that are leased or sold in the open market. Since CRE is a sub-head of project finance, it also follows similar characteritics of project finance i.e.both repayment of the loan and recovery in case of default are closely tied to the cash flows from the real estate asset  such as rental income or sale proceeds. [see para 9(b)]. The definition is aligned with the definiton of income-producing real estate (IPRE) under Basel norms. Our article discussing CRE can be assessed here. https://vinodkothari.com/2023/04/commercial-real-estate-lending-risks-and-regulatory-focus/

Commercial Real Estate – Residential Housing (CRE-RH) [see para 9(c)]

Since residential housing projects generally pose lesser risk and volatility compared to commercial properties, the RBI created a distinct sub-category within CRE called CRE-RH vide notification dated June 21, 2013. CRE-RH includes loans given to builders or developers for residential housing projects meant for sale.To classify as CRE-RH, the project must be predominantly residential and commercial components like shops or schools should not exceed 10% of the total built-up area (FSI). If the commercial area crosses this 10% threshold, the entire project will be CRE. This distinction isn’t just semantic, it has regulatory benefits. Since CRE-RH are subject to lower risk due to various reasons such as diversified cash flows and lower dependency on a single occpnt, RBI has assigned lower capital risk weights i.e. 75% to CRE-RH compared to standard CRE 100% and lower provisioning provisioning requirements (0.75% vs. 1%).

Prudential requirements 

Provisioning requirements

In the context of project finance, where risks vary across different phases of a project’s lifecycle, a one-size-fits-all provisioning approach throughout the project life may not be relevant. . 

Under the SBR, provisioning norms made no distinction between the construction and operational phases of a project. A uniform provisioning rate was applied i.e. 0.75% for CRE-RH and 1% for CRE while other loans were provisioned at 0.4% irrespective of whether the project was just starting construction or had already begun generating revenue. This approach, while simple, failed to reflect the heightened risks associated during the construction phase , such as delays, cost overruns, or regulatory hurdles.

To address this gap, the Draft Directions, proposed a conservative approach calling for a 5% provision during the construction phase and 2.5% during the operational phase, with the operational rate reducible to 1% if following conditions were met:

  1. the project demonstrated positive net operating cash flows sufficient to service all current repayment obligations, and
  2. there was a minimum 20% reduction in long-term debt from the level outstanding at the time of achieving DCCO.

These draft norms were considered overly harsh, particularly for long-gestation infrastructure projects where cash flows stabilise gradually.

Taking stakeholder feedback into account, the Directions adopted a more balanced g structure as follows: 

Project typeConstruction PhaseOperational phase – after commencement of repayment interest and principle
Commercial real estate (CRE)1.25%1%
CRE – Residential Housing1%0.75%
Other projects1%0.40%
DCCO deferred projects:Additional provisioning to be maintained depending on the type of project:0.375% per quarter for infra projects0.5625% per quarter for non-infra projects
NPA project finance accountsAs per extant instructions 
Provisionig for existing projectsContinued to be governed by extant norms;If resolution is done for any fresh credit event or change in terms occur after the effective date of these directions, then provisioning as per these Directions

Conditions of project finance

The onus is on the lender to ensure that the following conditions are met before extending any project finance. These conditions will ensure that the facility is structured prudently and is aligned with the implementation as well as cash flows of the project, thereby mitigating both credit as well as project risk. The requirements are more or less similar to the earlier Directions. 

Repayment schedule during operational phase is designed to factor initial cash flows

  • Repayment tenor, including the moratorium period, if any, shall not exceed 85% of the economic life of a project.
  • This means there is a mandatory 15% tail period i.e. if the project has an economic life of 20 years and the loans are to be repaid in 17 years, the last 3 years are the tail period.Tail period gives comfort to the lender that in case of any default or delay in repayment by the time of maturity, there is still some period left to recover dues from the project cash flows after the scheduled loan maturity.
  • Would this mean that a borrower cannot obtain a  top-up loan after the expiry of 85% of the loan tenure? 
  • The requirement applies to loans with all kinds of tenures, either short or long. 

One borrower, multiple lenders

  1. If a project is financed by more than one lender, RBI mandates that the DCCO, whether original, extended or actual, shall be the same across all lenders. This will ensure that:
  1. DCCO is uniform across all lenders 
  2. Project progress as well as any delays are uniform across all lenders
  3. Uniform asset classification, preventing any lender from having a different provisioning status. 
  1. To ensure balanced risk sharing, the Directions have put consortium lending limits (Para 15): Where projects are under-construction: 
  1. Aggregate exposure of all lenders is ≤ ₹1,500 crore: each lender shall hold at least 10% of total exposure;
  2. For projects with exposure > ₹1,500 crore: each lender must hold at least 5% or ₹150 crore, whichever is higher.

These caps essentially require participating lenders to hold sufficient skin in the game and thereby promote responsible credit appraisal as well as avoid risk from being concentrated in a few lenders, especially where other lenders have negligible exposure and hence, less incentive to ensure monitoring. 

  1. Inter-lender transfer 
  2. These minimum exposure norms will not apply to operational phase projects;
  1. In design or construction phase, lenders are permitted buy/sell exposure only under syndication arrangements as per TLE, and within the exposure limits
  2. In operational phase, exposures can be freely transferred as per TLE norms.

This may be because construction and pre-operational stages are inherently more uncertain and riskier, and therefore, the regulator requires lenders who are willing to remain committed and not exit easily to avoid creating instability.

Project lifecycle – 3 different phases

A project has been divided into 3 phased viz Design, Construction and Operational.

Why does this classification matter?

The regulatory framework treats each phase differently for various risk, compliance and prudential reasons. 

  1. Disbursement discipline (Para 21)
    1. Disbursal of funds must be linked to project completion milestones i.e. completion of phases.
    2. Lenders must also track progress in equity infusion and other financing sources as agreed at financial closure
  2. Asset classification (Para 22 & 29)
    1. In design and construction phases, loans can be classified as NPA based on recovery performance, as per IRACP norms. 
    2. Once an account is classified as NPA, it can only be upgraded after demonstrating satisfactory performance during the operational phase
  3. Resolution trigger (Para 23)
    1. If any credit event (e.g., default) occurs with any lender during the construction phase, a collective resolution process is triggered
  4. Provisioning norms (Para 32)
    1. Provisioning rates are higher for projects under construction
    2. Once the project enters the operational phase, provisioning reduces, reflecting lower credit risk.

Mandatory requirements before sanctioning a project finance loan: (13)

  1. Achievement of financial closure and documentation of original DCCO;
  2. Project specific disbursement schedule vis a vis stage of completion is included in loan agreement
  3. Post DCCO repayment schedule designed to factor initial cash flows

Prudential conditions related to disbursement and monitoring:

Lender to ensure the following:

  1. Clearances are obtained by the lender:
    1. All requisite approvals/clearances for implementing/constructing the project are obtained before financial closure.(examples: environmental clearance, legal clearance, regulatory clearances, etc.)
    2. Approvals/clearances contingent upon achievement of certain milestones would be deemed to be applicable when such milestones are achieved. 
  2. Availability of sufficient (prescribed) minimum land/right of way with the lender before disbursal of funds
    1. This would mean that lender must ensure that the builder executing the project has either:
      1. Ownership of the land (through purchase, lease etc.) or
  3. Legal rights to use/access the land i.e. Right of Way.
  4. For PPP projects, disbursal of funds to occur only after declaration of the appointed date. 
    1. Except where non-fund based facilities are mandated by the concessioning authority as a pre-requisite for declaration of the appointed date itself;
  5. Disbursal to be proportionate 
    1. To stages of completion of project, infusion of equity or other sources of finance and receipt of clearances
    2. Lender’s Independent Engineer/Architect to certify the stages
  6. Creation and maintenance of a project finance database (see para 37):
    1. Every lender to capture and maintain, on an ongoing basis, project specific information relating to:
      1. Debtor and project profile;
      2. Change in DCCO;
      3. Credit events other than deferment of DCCO;
      4. Specifications of project
    2. Any updation shall be made within 15 days from any change in information;
    3. Necessary systems to be placed within 3 months from the effective date ie by 1st January, 2026

Resolution of Project Loans

Prudential norms for resolution

  • Lender to monitor performance of project on on-going basis;
    • Expected to initiate a resolution plan well in advance.
  • Collective resolution to be initiated by the lenders in case credit event happens with any one lender
  • In case of any credit event;
    • Lender to report the same:
      • to the Central Repository of Information on Large Credit and;
      • to all other lenders, in case of consortium lending.
    • Lender to take a review of debtor account within 30 days.
      • Inter creditor agreement and decision to implement a resolution plan may be done during this period.
      • Implement the resolution plan within 180 days from the end of the review period.

Resolution plans involving extension of DCCO

Paragraphs 26 to 28 provide a structured framework under which project loans may continue to be classified as ‘standard’ despite delays in project completion, provided specific conditions are met. The objective is to offer flexibility to lenders and borrowers in addressing genuine project delays or cost escalations, without triggering an immediate downgrade to NPA so long as the resolution is timely and prudently implemented.

  • Permitted DCCO deferment
    • The DCCO may be deferred, with a corresponding adjustment in the repayment schedule. However, such deferment is subject to the following maximum limits:
      • Up to 3 years for infrastructure projects
      • Up to 2 years for non-infrastructure projects (including commercial real estate)
  • Cost overrun associated with the DCCO deferment:
    • A cap of 10% of the original project cost, over and above Interest During Construction (IDC)
    • The overrun must be financed through a Standby Credit Facility sanctioned at the time of financial closure
    • Post-funding, key financial metrics such as the Debt-Equity ratio and credit rating must remain unchanged or show improvement in favour of the lender
  • Deferment in DCCO associated with change in scope and size
    • Rise in project cost (excluding cost overrun) is at least 25% or more of the original project outlay
    • Reassessment of project viability by the lender before approving the revised scope and DCCO
    • If the project has an existing credit rating, the new rating must not deteriorate by more than one notch; if unrated and aggregate lender exposure is ₹100 crore or more, the revised project must obtain an investment-grade rating
    • This benefit of maintaining ‘Standard’ classification due to a change in scope can be availed only once during the project’s life
  • Resolution plan (‘RP’) deemed successfully implemented only if:
    • Necessary documentation completed within 180 days from the end of the Review Period and;
    • Revised capital structure and financing terms are duly reflected in the books of both the lender and the borrower. 
  • Immediate downgrading to NPA if the resolution plan is not implemented within the timeline and conditions above
    • Once NPA, account can be upgraded only after:
      • Satisfactory performance post actual DCCO, in case of non-compliance with conditions of resolution plan;
      • Successful implementation of resolution plan, in case of non-implementation of RP within the specified time.

See a detailed PPT on the Project Finance Directions here

See our video on Project Finance Directions here

  1. A contractual model where the project earns fixed payments from the counterparty based on the asset’s availability and performance, irrespective of actual usage or demand ↩︎
  2. A contract under which the buyer agrees to pay for a specified quantity of output (e.g., power, gas, water) whether or not it actually takes delivery, ensuring predictable cash flows for the project. ↩︎