The government has
adopted a Microfinance policy that mainstreams the concept of
sustainable Microfinance, recognizes the need to enhance social
capital, and considers risk mitigation as a necessary safety net
measure for the poor. It also recognizes the need for and encourages
private sector, especially NGOs, in poverty reduction and their entry
into banking with the poor to ensure innovation and flexibility. It
has enacted a legal framework for establishment of MFIs in private
sector, known as MFIs Ordinance 2001.
The MFIs Ordinance
2001 inter alia stipulates the functions, capital requirements,
ownership structure, terms and conditions for establishing
Microfinance Banks/Institutions in the country, audit and disclosure
requirements and winding up procedure. It allows establishment of
three categories of MFIs i.e. the MFIs having operations on national
level, MFIs operating in a Province and the MFIs operating in a
specified District with minimum capital requirements of Rs.500
million, Rs.250 million and Rs.100 million respectively for nation,
province and district based MFI. The prospective MFIs are required to
be incorporated as Limited Liability Company under the company law
before applying to State Bank of Pakistan (SBP), the Central Bank,
for an MFI license. The SBP being the only regulatory and supervisory
agency for all deposit taking institutions has been entrusted with
responsibility for regulation and supervision of MFIs as well. It
will use both off-site and on-site surveillance techniques for the
purpose. It will ensure good corporate governance and introduction of
prudent business policies and practices in MFIs. The framework
provides the scope for NGOs to become regulated MFIs provided they
meet the requisite criteria. The
First Microfinance Bank Limited co-sponsored by a renowned NGO AKRSP
has already been issued a MFI license. It is expected that a number
of matured NGOs and Rural Support Programs presently operating in
Pakistan will be licensed as MFIs.
The legal and regulatory systems have
been designed for financial intermediaries with substantive long-term
interest in microfinance. NGO microfinance providers are subject to
these provisions only when they seek a depository MFI status. Thus,
the NGOs have the flexibility to either maintain their institutional
orientation or to transform into MFIs. The microfinance sector thus
now consists of new licensed depository MFIs, NGO microfinance
providers, and partnership arrangements between MFIs and NGOs that
provide social services.
The regulatory
framework for the MFBs/MFIs has been developed through consultative
process with a perception of relatively lenient regulations to enable
the MFIs to grow. Being in the initial phase presently most of the
supervision is off-site relying on the returns and data being/to be
received from the MFIs with occasional on-site visits to have a feel
of overall systems and control in place in the MFIs.
Regulatory / Supervisory Framework consists of the following:
a)
Criteria and Conditions for Grant of License for Establishing
Microfinance Banks/Institutions.
b) Prudential Regulations for Microfinance Banks /
Institutions.
CRITERIA AND CONDITIONS FOR
GRANT OF LICENSE FOR ESTABLISHING MICROFINANCE BANKS/INSTITUTIONS:
In order to
maintain transparency in the process of granting of License for
establishing an Microfinance Institution, SBP developed the criteria
and conditions that was refined with the input of some international
MF experts. This Criteria has been made public going through the
consultative process and with the consensus of MF stakeholders. The
criteria is readily available at SBP Website (www.sbp.org.pk).
The Criteria requires that the MFB/MFI shall be a public limited company
incorporated in Pakistan, whose Memorandum and Articles of
Associations shall be reviewed and cleared by State Bank of Pakistan,
the number of sponsor Directors shall not be less than seven. MFB/MFI
shall have a minimum paid up capital of Rs. 500 million, Rs.250
million and Rs.100 million respectively for countrywide, specific
province-wide and specific District-wide operations. However,
NGOs/Projects having exposure and understanding of the dynamics of
the MF Sector may apply for a license under MFIs Ordinance and they
may contribute up to 50 percent of their capital in form of their
existing portfolio of micro-credit and other assets (net of losses)
after due diligence by a reputed Chartered Accountancy firm on the
SBP's panel of auditors.
The
promoters or sponsor members shall subscribe at least 51% of the
total paid up capital, these shares shall remain in safe custody of
SBP and shall not be transferable nor encumbrance of any kind shall
be created thereon without prior permission in writing from SBP. The
amount proposed to be subscribed by each sponsor Director is required
to be indicated separately. Sponsor Directors should have
declared/Certified personal Net Worth, which should not be less than
the amount to be subscribed by them personally. They shall furnish
names of the banks/DFIs along with the names of the branches with
which they have had dealings alongwith reports from these Banks or
DFIs. The Sponsor Directors and Chief Executive shall submit
commitment letters to serve against their respective positions.
However,
Institutional sponsors shall submit a resolution of their respective
Boards/Governing Bodies for i) sponsoring the MFB/MFIs either
individually or in collaboration with other persons ii) the amount to
be subscribed and iii) the nomination of Directors representing the
institution on the MFB/ MFI Board. It shall also submit latest years
audited financial statements along with the auditors' opinion on
the financial repute and capacity of the institution to make the
proposed investment in the MFB/MFI.
Foreign
investment shall be allowed in accordance with the Govt. Foreign
Investment Policy. While dividends may be repatriated with SBP
approval, the repatriation of principal will be allowed at inter-bank
exchange rate in case of sale of shareholding to sponsors acceptable
to SBP.
Applications may be
disqualified if any of the sponsor Directors or their spouses has
been convicted by a court of law in Pakistan or abroad for a criminal
offence, associated with any illegal activity especially in
contravention of banking and corporate laws, is a defaulter of banks
and other financial institutions or tax authorities.
The
applicant shall also submit following documents with the application,
which shall be used for analysis:
Feasibility Study for setting up the Microfinance
Bank/Institution in the specified area i.e. the specific district,
province or the whole country;
The organizational structure alongwith detailed CVs of
the Chief Executive and the Senior Management team.
The microfinance model(s), which the proposed MFB/MFI
would be using for extending MF Services
Short term and long term business plans
The
MFIs must commence operation within six months of the grant of
license by the SBP. The Microfinance Banks / Institutions, which may
be permitted to be established, shall bound to comply with the
provisions of Microfinance Institutions Ordinance 2001, Rules
Regulations framed under it and SBP directives to be issued from time
to time.
The
basic Philosophy and theme of the regulatory framework is that it
should be responsive to the peculiar characteristic of MFIs
activities and should address the risks associated with the
functions/activities of MFIs without stifling their growth.
Considering limited capacity of SBP in MF regulation and supervision,
international MF experts was hired as a consultant to give input for
the regulatory framework for MFIs in consultation with domestic MF
practitioners/stakeholders and keeping in view the international best
practices adaptable to our local conditions.
Prudential
Regulations for MFBs/MFIs prescribes guidelines on capital
requirements, creation of reserves, loan & Investment
classification and provisioning requirements, exposure limits, code
of conducts, on procedural issues, management and its conduct,
reporting requirements and punitive measures on non compliance of
instructions. A brief Highlights of different PRs are as follows:
MFB/MFI shall have minimum paid-up capital
as prescribed in MFIs Ordinance 2001 and it shall also maintain
equity equivalent to at least 15% of its risk-weighted assets, risk
weights of various assets have been defined. The reason of assigning
15% Capital Adequacy Requirement is due to high risk associated with
unsecured lending.
The
Contingent liabilities of the MFB/MFI for the first three years of
its operations shall not exceed three times of its equity and there
after shall not exceed 5 times of the MFB/MFI's equity.
MFB/MFI are required to
maintain 5 % of its Time & Demand Liabilities as Cash Reserves
and additional 10% as Liquidity in liquid assets i.e. gold and
approved securities.
MFB/MFI shall create a reserve fund to which
shall be credited an amount at least 20% of its annual profits after
taxes till it reserve fund equals the paid-up capital of the MFB/MFI
and after that 5% of its annual profit after taxes.
MFB/MFI is required to establish and
maintain a Depositors' Protection Fund or scheme for the purpose of
mitigating risk of its depositors, to which MFB/MFI shall credit not
less than 5% of its annual profit after taxes.
The MFB/MFI shall not allow any
facility for speculative purposes;
allow financing facilities and other Microfinance Services to
any of its sponsors, directors or employees including their spouses,
parents, and children. The rule shall not apply on loans given to
employees under staff loan policy of the MFB/MFI; without the prior
approval in writing of the State Bank, enter into leasing, renting
and sale / purchase of any kind with its directors, officers,
employees or persons who either individually or in concert with their
family members, beneficially
own 5% or more of the equity of the MFB/MFI & hold, deal or trade
in real estate except for use of MFB/MFI itself.
The MFB/MFI shall not extend loans exceeding
Rs.100,000/- to a single borrower. However, the MFB/MFI shall ensure
that the loan amount is commensurate with the business requirements
and repaying capacity of the borrower
MFI/MFB
shall ensure that total exposure of its clients from banks/ MFIs/MFBs/Other
Financial Institutions/NGOs etc. does not exceed Rs.100,000/- in
aggregate. For this purpose, they will obtain a certificate from the
clients regarding borrowings from banks and other MFIs/MFBs/NGOs.
The outstanding principal of
the loans and advances, payments against which are overdue for 30
days or more shall be classified as Non- Performing Loans (NPLs). The
unrealized interest/profit/mark-up/service charges on NPLs shall be
suspended and credited to interest suspense account. Further the NPLs
shall be divided into following categories:
i. OAEM: loans in
arrears (payments/installments overdue) for 30 days or more but less
than 90 days
ii. Substandard: loans
in arrears (payments/installments overdue) for 90 days or more but
less than 180 days
iii.
Doubtful: loans in
arrears (payments/installments overdue) for 180 days or more but less
than 365 days
iv. Loss: loans in
arrears (payments/installments overdue) for 365 days or more
A General Provision equivalent to 2% of the net
outstanding advances (advances net of specific provisions) will be
maintained by the MFB/MFI and in addition to the general provision,
the MFB/MFI shall make specific provisions against NPLs on OAEM,
Substandard, Doubtful and Loss 0%, 20%, 50% & 100% of outstanding
principal net of cash collaterals respectively.
The MFB/MFI shall value its investments on mark-to market
basis. However, in case of investments & other assets where
active market does not exist, the MFB/MFI shall make subjective
evaluation of such investments and other assets to determine their
quality, category of classification and provisions required, keeping
in view the risk involved and the requirements of international
accounting standards.
MFB/MFI shall reschedule / restructure the NPLs as per the
policy approved by their BOD. The rescheduled/restructured loans
shall, however, remain classified unless serviced regularly for 6
months.
All NPLs shall be written off, one
year after the default in performance. This shall, however, not
extinguish the MFI's/MFB's right of recovery of such written off
loans.
The
MFB/MFI shall implement appropriate pricing policies, which ensure
access of affordable financial services to the poor as well as
operational and financial self-sustainability of MFIs.
The MFB/MFI may acquire
or hold shares of any body corporate, the objective of which is to
provide microfinance services to poor. The maximum investment in such
a company, however, shall not exceed 15% of paid-up share capital of
that company or 15% of MFIs' own equity free of losses, whichever
is less. For making investment in excess of the 15% limit, prior
permission from SBP shall be obtained.
While considering proposals for extending Microfinance facilities, the MFB/MFI
shall make all reasonable efforts to determine the true identity of
its clients and shall develop and implement effective procedures and
methods for the purpose. It shall interalia obtain copies of National
Identity Card or Passport or Driving license etc. from the client
which shall be stamped as original seen by the MFB/MFI officer. In
far-flung and remote areas where people, particularly women, don't
have identity cards, the MFB/MFI may extend micro-credit by
establishing identity through other appropriate means. For Corporate
clients, the MFB/MFI shall obtain by-laws, Memorandum & Articles
of Association and Board Resolution etc. before extending services.
The MFB/MFI shall not remove from specified area,
to a place outside that specified area, any of its records and
documents either physically or electronically relating to its
business without the prior permission in writing of the State Bank of
Pakistan.
No member of the Board of Directors of an MFB/MFI holding
5% or more of the paid-up capital of the MFB/MFI either individually
or in concert with his/her family members or concerns / companies in
which he / she has the controlling interest, shall be appointed in
the MFB/MFI in any capacity save as the Chief Executive of the MFB/MFI
and that no payment shall be made or perquisites provided to the
non-executive directors other than travelling and daily allowances
for attending meetings of the Board of Directors or its Committees.
Provided further that not more than 25% of the total directors can be
paid executives of the MFB/MFI.
The MFB/MFI shall not open new places of business
without prior permission in writing of the State Bank. The
approval/permission for opening of new branches/places of business
shall be granted in accordance with the MFIs Branch Licensing Policy.
The MFB/MFI shall not undertake any business of cash
payments at any place other than the authorized place of business.
However, this rule will not apply in case of Mobile Banking where
permission has been obtained from the State Bank.
The
Entries booked in the Inter-Branch Accounts and/or Suspense Account
must be reconciled/cleared and taken to the proper heads of accounts
within a period of 30 days from the date entry is made in the
above-named accounts.
The MFB/MFI shall get its books of
accounts audited in line with the provisions of section 16 of
Microfinance Institutions Ordinance, 2001 and submit three copies of
the annual audited accounts along with the auditors' opinion to the
State Bank within three months of the close of the accounting year.
The MFB/MFI shall have an Internal Audit Department manned
preferably by professionals/persons having prior audit experience in
banks/Financial Institutions. The Head of the Department shall report
directly to the Board of Directors or to an Audit Committee of the
Board.
The MFB/MFI to formulate operational policies for all
areas of operations including micro-credit, investments, internal
audit, human resource and rescheduling/restructuring/write-off of
loans/advances etc.
Enumerates the
disqualification conditions for election and appointment of
directors. A person convicted in an offence involving frauds, breach
of trust or moral turpitude, or has been adjudged as insolvent or has
suspended payment of his debts or has compounded with his creditors
or is a defaulter of any bank or financial institution or has been
debarred from holding such office under Companies Ordinance 1984 or
Banking Companies Ordinance 1962 or has been declared to be lacking
fiduciary behavior by the Court under section 217 of Companies
Ordinance 1984 at any time during preceding five years or is an
office bearer of a political party or a member of Senate, National
and Provincial Assembly.
prescribes the
formats of statistical return and stipulates the periodicity of
submission of these returns to SBP.
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