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NISM Series V-D · Chapter 4: Legal and Regulatory Framework

L1 · Foundation

Foundation — The regulators, SEBI's reforms and the investment restrictions

The four financial sector regulators, SEBI's preamble and objectives, the seventeen categories of mutual fund regulation, and the investment restrictions under Regulations 39, 41 and the Sixth Schedule.

24 min read · Worth 5% of the paper · Written from pages 82–100 of the official NISM workbook · Updated 18 September 2026

Chapter 4 — Legal and Regulatory Framework

4.1 The four regulators

India has four main money regulators. Each one looks after a different part of the market. Rules exist to keep buyers safe and to help the markets grow in an orderly way.

#RegulatorRegulates
1Reserve Bank of India (RBI)"The BANKING SYSTEM, as well as MONEY MARKETS"
2Securities and Exchange Board of India (SEBI)"The SECURITIES MARKETS"
3Insurance Regulatory and Development Authority of India (IRDAI)"The INSURANCE MARKET"
4Pension Fund Regulatory and Development Authority of India (PFRDA)"The PENSION MARKET"

4.2 The role of SEBI

For a mutual fund, SEBI is the regulator that matters most. It oversees the fund and most of the firms that serve it.

The Preamble, quoted in full:

The three aspects the regulations cover

  • "DISCLOSURES by issuers of securities, e.g., companies that issue shares or debentures, and mutual funds that issue mutual fund units".
  • "EFFICIENCY OF TRANSACTIONS in the securities markets".
  • "LOW TRANSACTION COSTS".

Four other areas warranting regulation

The workbook also names four kinds of bad conduct that the rules try to stop:

"Deliberate SPECULATION in stock markets; INSIDER TRADING; EXCESSIVE RISKS taken by mutual funds; INADEQUATE COLLATERAL by issuers of debt securities".

Note: the term 'securities' means "financial instruments that are TRANSFERABLE AND TRADEABLE IN THE SECONDARY MARKET", defined in Section 2(h) of the Securities Contracts (Regulation) Act, 1956.

4.3 Regulatory reforms and the seventeen categories

SEBI's mutual fund rules have changed over time, but the aim has stayed the same. SEBI groups its rules for mutual funds into the categories in the table below.

#CategoryWhat it covers
1Scheme related documentsObjectives, content and frequency of publication. Includes the TRI mandate — see below
1ARegistrationRegistration of AMC, sponsor, trustees; also merger of AMCs and change in management
2Conversion and consolidation of existing schemesScheme mergers so that "the interests of ALL unitholders are protected"; the categorisation circular aimed "to reduce the number of schemes to ONE PER CATEGORY in the open-ended arena, so that investors do not get confused"
3New productsNew categories approved from time to time — e.g. Infrastructure Debt Funds and ESGs
4Risk management systemOperational risk governance; exposure limits to ensure a diversified portfolio and schemes that remain "true-to-label"; segregated portfolios on a credit event
5Disclosures and reporting normsThe kinds, manner and frequency of disclosure, often in a prescribed format
6Governance normsAudit and valuation committees, role of independent directors and trustees, minimum number of investors in a scheme, benchmarking, systems audit, and the role of mutual funds in corporate governance
7Secondary market activitiesActivities in equity, debt, government securities and derivatives
8Net Asset ValueNAV disclosures, rounding-off, cut-off time, time stamping, uniformity in sale and purchase price
9ValuationValuation of securities held
10Loads, fees and expensesLimits, and disclosure of commission payable to distributors
11IDCW distribution procedureCalculation of distributable surplus
12Investment by schemesInvestment restrictions and limits
13AdvertisementsWhat advertisements may and may not cover; statutory advertisement frequency; disclaimers and risk factors
14Investor rights and obligationsDispatch of account statements or redemption pay-outs, penalty for delays, instant access facility in liquid funds
15Certification and registration of intermediariesCertification examinations and continuous professional education (CPE)
16Transaction in mutual fund unitsStock exchange platforms, documents the AMC/RTA must preserve, KYC norms
16ACorporate Debt Market Development Fund (CDMDF)A BACKSTOP FACILITY for purchase of investment grade corporate debt securities, to "instill confidence... during times of stress" and "enhance secondary market liquidity by creating a PERMANENT INSTITUTIONAL FRAMEWORK for activation in times of market stress"
16BExecution Only Platforms (EOP)Scope, categories, eligibility, on-boarding, rights and obligations, fees, operational risk management, grievance redressal, conflict of interest, technology and disclosures
17Miscellaneous"All the matters not covered in the above 16 categories"

Price Return Index versus Total Return Index

A benchmark is the yardstick a fund is judged against. The question is which kind of index makes a fair yardstick.

Other reforms mentioned

  • Segregated portfolios — after the 2018 credit crisis, "for protecting the interests of the unitholders and giving FAIR TREATMENT to all investors in case of a CREDIT EVENT and to deal with LIQUIDITY RISK". A segregated portfolio is "a mechanism to SEPARATE DISTRESSED, ILLIQUID ASSETS from other more liquid assets".
  • The 2008 global liquidity crisis brought "disallowing PREMATURE REDEMPTION in case of Fixed Maturity Plans (FMPs), and disallowing the phrase 'LIQUID PLUS' while naming mutual fund schemes".
  • The Potential Risk Class (PRC) matrix classifies all debt schemes by maximum interest rate risk (Macaulay Duration) and maximum credit risk (Credit Risk Value); AMCs "retain the same category of their schemes and they have FULL FLEXIBILITY to place single/multiple schemes in any cell of the PRC" — effective 1 December 2021.

Other regulators' rules also apply

SEBI is not the only rule-maker a fund must obey. When a fund deals in an area run by another regulator, that regulator's rules apply too.

And "every stock exchange has its own listing, trading and margining rules", which mutual funds must follow for the exchanges on which they list units.

4.4 Investment restrictions

Investors hand their money to the fund manager and have no say in what he buys. So SEBI sets limits on what he may buy and how much risk he may take.

Regulation 39 — the permitted investment universe

The AMC "shall invest funds of a mutual fund scheme ONLY in the following":

  • (a) securities;
  • (b) money market instruments;
  • (c) privately placed debentures;
  • (d) securitised debt instruments, which are either ASSET BACKED or MORTGAGE BACKED securities;
  • (e) gold or gold-related instruments;
  • (f) silver or silver-related instruments;
  • (g) any other asset or instrument as may be specified by the Board.

If an asset is not on this list, a scheme cannot hold it.

And the timing rule that governs all the limits: "The restrictions specified APPLY AT THE TIME OF MAKING THE INVESTMENT".

Regulation 41 — restrictions on investments

  • Investments other than by gold and silver ETF schemes are subject to the SIXTH SCHEDULE.
  • Gold and silver ETF schemes may invest in exchange traded commodity derivatives, subject to SEBI's restrictions.
  • "The mutual fund shall settle their transactions ONLY IN DEMATERIALISED SECURITIES", except as SEBI specifies.
  • Gold and silver ETFs: funds may be invested "ONLY in gold or gold related instruments or silver or silver related instruments... EXCEPT to the extent necessary to meet the LIQUIDITY REQUIREMENTS for honouring redemption requests"; pending deployment, in short-term deposits of scheduled commercial banks.
  • "The funds of mutual fund scheme shall NOT in any manner be used in CARRY FORWARD TRANSACTIONS" except as specified.
  • Derivatives may be transacted on a recognized stock exchange, within SEBI's framework.
  • Short selling must be "executed on a recognized stock exchange" within the short selling and securities lending and borrowing framework.
  • Transfers between schemes of the same mutual fund are permitted subject to SEBI's conditions.

The Sixth Schedule

The Sixth Schedule holds the detailed limits. In short: buy mostly listed papers, take and give delivery, hold assets in the fund's name, and do not stack one fund of funds on another.

  • Investment in equity shares, equity related instruments and debt instruments may be made "ONLY in LISTED OR TO BE LISTED securities", except: unlisted Government Securities and money market instruments other than commercial papers, and unlisted non-convertible debentures to the extent specified.
  • Unrated debt instruments are subject to SEBI's conditions.
  • "A scheme may invest in ANOTHER SCHEME under the same mutual fund or ANY OTHER mutual fund WITHOUT CHARGING ANY FEES", subject to limits — "This clause shall NOT apply to any FUND OF FUND schemes".
  • "NO scheme of a mutual fund shall make any investment in any FUND OF FUNDS scheme".
  • A fund of funds scheme shall not invest in any other fund of funds scheme, and shall not invest its assets other than in schemes of mutual funds, except for liquidity requirements for repurchases or redemptions as disclosed.
  • "Every mutual fund shall BUY AND SELL SECURITIES ON THE BASIS OF DELIVERIES and shall in all cases of purchases, TAKE DELIVERY of relevant securities and in all cases of sale, DELIVER the securities" — with provisos permitting short selling, exchange-traded derivatives, and sale of a government security already contracted for purchase under RBI guidelines.
  • Securities must be "purchased or transferred IN THE NAME OF THE MUTUAL FUND on account of the concerned scheme", except as specified.
  • Pending deployment, funds may go into short term deposits of scheduled commercial banks.
  • Investments are subject to "such PRUDENTIAL LIMITS as prescribed by SEBI".

SIF investments — Regulation 51

An SIF "may invest monies collected under any of its investment strategies in instruments permitted under regulation 39 for mutual funds schemes", and such investment "is subject to investment restrictions applicable to mutual fund schemes as specified in the Sixth Schedule".

Think of it like this

Four regulators, one ministry — and SEBI's list is wider than mutual funds

RegulatorSector
RBIThe banking system and the money markets
SEBIThe securities markets
IRDAIThe insurance market
PFRDAThe pension market

And a fact that is easy to skip: "These regulators come under the purview of the MINISTRY OF FINANCE."

Note that RBI's remit in this chapter is stated as two things — banking and money markets — which is why mutual funds must comply with RBI rules on money market investment, investments outside the country, investments from non-residents, and inward and outward remittance of foreign currency, even though SEBI regulates the fund itself.

SEBI's own list is worth memorising as a set: it regulates "mutual funds, depositories, custodians, registrars and transfer agents (RTAs) and credit rating agencies." Every service provider in Chapter 3 except the fund accountant appears there.

And the Preamble is quotable in one line: "to PROTECT the interests of investors in securities and to PROMOTE THE DEVELOPMENT of, and to REGULATE the securities market." Protect, promote, regulate — the same trio the SEBI chapter of any workbook returns to.

Price Return versus Total Return — why a fund must be judged against TRI

Imagine comparing a tenant-occupied flat with a vacant one and counting only the rise in property prices. You would be ignoring the rent — and the flat that earns rent would look no better than the one that does not.

That is the difference between the two index types:

Counts
Price Return Index (PRI)"ONLY the PRICE MOVEMENT of its constituents" — that is, only the capital gains
Total Return Index (TRI)"ALL DIVIDENDS/INTEREST PAYMENTS generated from the basket... IN ADDITION TO the capital gains", with cash flows "presumed to be NOTIONALLY REINVESTED ON THEIR EX-DATE"

Now the reason SEBI mandated the change: "A mutual fund scheme takes into consideration, CAPITAL GAINS AS WELL AS THE DIVIDEND EARNINGS/INTEREST INCOME of the instruments in which it has invested while calculating the return generated by the scheme."

So a fund's NAV already includes the dividends it received. Comparing that against a price-only index flatters the fund by exactly the dividend yield of the market — a free head start of a percentage point or two every year, purely from the choice of yardstick.

"TRI is MORE APPROPRIATE as a benchmark... Therefore, SEBI stipulated that ALL Mutual Fund schemes be benchmarked against Total Return Indices." Like against like.

The seventeen categories are a map of everything else in the workbook

Read the list of regulation categories and you are reading the table of contents of the rest of the course:

CategoryWhere you meet it again
Scheme related documentsChapter 5 — SID, SAI, KIM
Loads, fees and expensesChapter 7 — TER, entry and exit load
NAV — rounding, cut-off time, time stampingChapters 7 and 9
ValuationChapter 7 — fair valuation principles
IDCW distribution procedureChapters 7 and 8
Investment by schemesThis chapter — Regulations 39, 41, Sixth Schedule
AdvertisementsThis chapter — the Fifth Schedule code
Investor rights and obligationsThis chapter
Certification and registration of intermediariesChapter 6 — NISM certification, ARN, CPE
Transaction in mutual fund unitsChapter 9 — KYC, exchange platforms

Three categories carry facts that are examined in their own right. Governance norms cover audit and valuation committees, independent directors and trustees, the minimum number of investors in a scheme, benchmarking, and systems audit. Risk management covers exposure limits to keep schemes "true-to-label" and segregated portfolios. And two newer entries — 16A, the Corporate Debt Market Development Fund, and 16B, Execution Only Platforms — were inserted rather than renumbering the list, which is itself a clue that they are recent.

Category 17, Miscellaneous, is defined by exclusion: "all the matters not covered in the above 16 categories."

Segregated portfolios and "liquid plus" — reforms with dates attached

Two crises produced two sets of reforms, and the workbook attaches a year to each:

The 2008 global liquidity crisis produced, among others, "disallowing PREMATURE REDEMPTION in case of Fixed Maturity Plans (FMPs), and disallowing the phrase 'LIQUID PLUS' while naming mutual fund schemes." The second is a naming rule of the same family as the later prohibition on names emphasising only return — credit opportunities, high yield, credit advantage. A name should describe what a scheme is, not what it promises.

The 2018 credit crisis produced the segregated portfolio: "a mechanism to SEPARATE DISTRESSED, ILLIQUID ASSETS from other more liquid assets in a mutual fund portfolio to deal with a situation arising due to a CREDIT EVENT." Its purpose is stated as "protecting the interests of the unitholders and giving FAIR TREATMENT TO ALL INVESTORS."

Why fairness is the issue: without segregation, an investor who redeems early after a default gets out at a NAV that has not yet absorbed the loss, leaving the remaining investors to bear it. Ring-fencing the bad asset stops that.

A third, later measure completes the picture. The Potential Risk Class (PRC) matrix, effective 1 December 2021, classifies all debt schemes by maximum interest rate risk (Macaulay Duration) and maximum credit risk (Credit Risk Value) — disclosing not what the manager is doing but the most risk he is permitted to take.

Regulation 39 is a closed list — and the limits are tested at purchase

Seven items, and the seventh is the safety valve — anything else needs SEBI to specify it.

Then a timing rule that resolves more exam questions than any other in this section: "The restrictions specified APPLY AT THE TIME OF MAKING THE INVESTMENT."

That single sentence explains why breaches caused purely by market movement are treated differently from breaches caused by a purchase — and it connects directly to Chapter 1's passive breach rule, where SEBI allows 30 business days to rebalance a deviation "not arising out of omission and commission of AMCs."

A fund whose mid-cap holding rises until it exceeds a limit has not broken Regulation 41. A fund that buys past the limit has.

The reason for the whole apparatus is stated at the outset: a mutual fund is "a PASS-THROUGH VEHICLE" in which "the investors have NO CONTROL over the investment management" — so the limits exist "to CONTROL THE RISKS TAKEN BY THE MUTUAL FUND MANAGERS."

Listed or to be listed — and the fund of funds rules that run in both directions

Two Sixth Schedule rules repay careful reading.

The listing rule. Investment in equity shares, equity related instruments and debt instruments may be made "ONLY IN LISTED OR TO BE LISTED SECURITIES" — with two carve-outs: unlisted Government Securities and money market instruments other than commercial papers, and unlisted non-convertible debentures to the extent SEBI specifies.

Note the phrase "to be listed". A security in the process of listing qualifies; a permanently unlisted share does not.

The fund of funds rules, which run in three directions and are easy to confuse:

RuleEffect
A scheme may invest in another scheme of the same or any other mutual fund, "WITHOUT CHARGING ANY FEES", subject to limitsBut "this clause shall NOT apply to any fund of fund schemes"
"NO scheme of a mutual fund shall make any investment in any FUND OF FUNDS scheme"Nothing may invest into a FoF
"A fund of funds scheme shall NOT invest in any other fund of funds scheme"A FoF may not invest into another FoF
A FoF "shall not invest its assets other than in schemes of mutual funds"Except for liquidity requirements for repurchases or redemptions, as disclosed

Read together, they prevent layering — a fund of a fund of a fund, each charging its own costs. Chapter 2 already recorded the positive requirement: a Fund of Funds must hold at least 95% in the underlying fund.

Delivery basis: the rule, and the three provisos that prove it

That is the rule, and it is unqualified in its own terms: a mutual fund does not trade intraday positions that are squared off without delivery. It is reinforced elsewhere in Regulation 41 — "the funds of mutual fund scheme shall NOT in any manner be used in CARRY FORWARD TRANSACTIONS" — and by the settlement rule that "the mutual fund shall settle their transactions ONLY IN DEMATERIALISED SECURITIES."

Three specified provisos then permit defined exceptions, each requiring a formal framework:

ProvisoCondition
Short sellingIn accordance with the short selling and securities lending and borrowing framework specified by SEBI, and executed on a recognized stock exchange
Derivatives"In a recognized stock exchange", subject to SEBI's framework
Government securitiesSale of a G-sec already contracted for purchase, under RBI guidelines

The structure is familiar from law: a general obligation, then narrow, conditional, supervised exceptions. The principle the workbook is testing is the general rule — mutual funds transact on a delivery basis, and securities are held "in the name of the mutual fund on account of the concerned scheme."

Key terms in this chapter

AGNI
AMFI Guidelines & Norms for Intermediaries — the code of conduct for individual agents, brokers, distribution houses and banks selling mutual fund products. On breach, AMFI seeks an explanation within three weeks, then issues a warning letter, and cancels registration on a proven second violation, with intimation to all AMCs and a right of appeal to AMFI.
AMFI Code of Ethics (ACE)
The standards of good practice to be followed by AMCs in their operations and dealings with investors, intermediaries and the public. It supplements the SEBI Code of Conduct in the Fourth Schedule, setting more explicit standards than the broad principles the Regulations lay down.
Caveat emptor
Let the buyer beware — an investor is presumed to have read the scheme related documents and cannot seek legal protection on the ground of being unaware of the law or of matters fairly and transparently stated. A proposed investor who has not invested does not have a unitholder's rights.
Celebrity endorsement
Prohibited in scheme advertisements. Permitted only at industry level to increase awareness of mutual funds as a product category, provided it does not promote a particular scheme or AMC brand, expenses come from industry-aggregated investor education funds, and SEBI approves in advance.
Change in fundamental attributes
A change that modifies the scheme and affects unitholders’ interests, which may not be made unless written communication is sent to each unitholder, details are displayed on the AMC’s website, and an exit at prevailing NAV without exit load is offered for at least 30 days.
Corporate Debt Market Development Fund (CDMDF)
A backstop facility for the purchase of investment grade corporate debt securities, created as a permanent institutional framework for activation in times of market stress, to instil confidence and enhance secondary market liquidity.
Cyber Security and Cyber Resilience Framework (CSCRF)
SEBI’s framework for registered entities, covering five cyber resiliency goals adopted from CERT-In’s Cyber Crisis Management Plan: Anticipate, Withstand, Contain, Recover and Evolve.
Delivery basis
The rule that every mutual fund shall buy and sell securities on the basis of deliveries, taking delivery on every purchase and delivering on every sale — subject to specified provisos for short selling, exchange-traded derivatives and the sale of a government security already contracted for purchase.
Fifth Schedule advertisement code
The eleven clauses governing mutual fund advertisements — requiring them to be accurate, true, fair, clear, complete, unambiguous and concise, and prohibiting false or projected statements, testimonials, rankings, exaggerated slogans, celebrities, unfair comparisons and any alteration of the standard warning.
Fund of funds restrictions
No scheme of a mutual fund may invest in a fund of funds scheme; a fund of funds scheme may not invest in another fund of funds scheme; and it may not invest other than in schemes of mutual funds, except for disclosed liquidity requirements.
Listed or to be listed
The Sixth Schedule requirement that investment in equity shares, equity related instruments and debt instruments be made only in listed or to-be-listed securities, except for unlisted government securities, money market instruments other than commercial papers, and specified unlisted non-convertible debentures.
Performance disclosure norms
For schemes over three years old, CAGR for 1, 3 and 5 years and since inception, plus point-to-point returns on ₹10,000. No past performance for schemes under six months; simple annualised growth for six to twelve months; and for overnight, liquid and money market funds, simple annualisation where figures exist for at least 7, 15 and 30 days.
Potential Risk Class (PRC) matrix
A matrix classifying all debt schemes by maximum interest rate risk, measured by Macaulay Duration, and maximum credit risk, measured by Credit Risk Value — disclosing the maximum risk the fund manager may take. Effective 1 December 2021.
Price Return Index (PRI)
An index that considers only the price movement of its constituents, and therefore captures only their capital gains.
Proceeds of illiquid securities
Where a security written off as wholly or partly non-recoverable later yields more, substantial amounts recovered within two years are paid to the old investors; in all other cases the amount goes to the Investor Education Fund maintained by each mutual fund.
Regulation 39
The closed list of instruments in which an AMC may invest scheme funds: securities, money market instruments, privately placed debentures, securitised debt instruments (asset backed or mortgage backed), gold or gold-related instruments, silver or silver-related instruments, and anything else SEBI specifies.
Restrictions apply at the time of investment
The timing rule for all investment limits — a limit is tested when the investment is made, which is why a breach caused purely by market movement is treated as a passive breach with a rebalancing period.
Right to beneficial ownership
The unitholder’s proportionate right to the beneficial ownership of the scheme’s assets, including the right to a unit certificate and to hold units in demat form. Units held in dematerialised form are freely transferable, except ELSS during the statutory minimum holding period.
SCORES
SEBI Complaint Redress System — a web-based centralised grievance redress system at http://scores.sebi.gov.in, where every activity from lodging a complaint to its closure is online. Complaints may also be lodged in physical form at any SEBI office and are then scanned and uploaded.
SEBI Preamble
Describes SEBI's basic functions as protecting the interests of investors in securities and promoting the development of, and regulating, the securities market and matters connected therewith or incidental thereto.
Securities
Financial instruments that are transferable and tradeable in the secondary market, as defined in Section 2(h) of the Securities Contracts (Regulation) Act, 1956.
Segregated portfolio
A mechanism to separate distressed, illiquid assets from the more liquid assets of a mutual fund portfolio on a credit event, introduced after the 2018 credit crisis to protect unitholders and give fair treatment to all investors.
SIF branding requirements
The requirement that a Specialized Investment Fund have a distinct brand name and logo separate from the mutual fund, with the sponsor's or mutual fund's brand usable for five years from SEBI approval in a font equal to or smaller than the SIF's own, and a separate website or dedicated web page.
Standard warning
"Mutual Fund investments are subject to market risks, read all scheme related documents carefully." No addition or deletion of words is permitted; it must appear in the vernacular where the advertisement is, and in audio-visual media in both visual form and voice-over.
The four regulators
RBI for the banking system and money markets, SEBI for the securities markets, IRDAI for the insurance market and PFRDA for the pension market — all under the purview of the Ministry of Finance.
Total Return Index (TRI)
An index that considers all dividends and interest payments generated by its constituents in addition to capital gains, with cash flows presumed to be notionally reinvested on their ex-date. SEBI requires all mutual fund schemes to be benchmarked against Total Return Indices.
Unauthenticated news guidelines
SEBI's requirement that intermediaries maintain an internal code of conduct, restrict or supervise access to blogs, chat forums and messenger sites, treat usage logs as records, and forward market-related news only after the compliance officer has seen and approved it — with the compliance officer also liable for breach of duty.
Unclaimed amounts
Redemption or dividend proceeds not claimed by an investor. Claimed within three years, payment is at prevailing NAV including income earned; claimed after three years, at the NAV as at the end of three years. Such amounts are deployed in a separate plan of a liquid scheme, with fees capped at 0.50 per cent per annum and no exit load.

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Original explanatory writing based on the official NISM workbook for Series V-D, which is published and copyrighted by NISM. Check figures against the current edition at nism.ac.in.

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