SEBI (Custodian) Regulations 1996: Safeguarding Institutional Capital in India’s Securities Markets

Introduction

The Securities and Exchange Board of India (SEBI) enacted the Custodian Regulations in 1996 to establish a comprehensive regulatory framework for entities that provide safekeeping services for securities and other financial assets in India’s capital markets. These regulations emerged from SEBI’s recognition that as institutional investment increased in sophistication and scale, specialized intermediaries were needed to ensure the safe custody of securities, proper settlement of transactions, and the administration of corporate actions. Custodians serve as critical infrastructure providers in the securities ecosystem, particularly for institutional investors such as mutual funds, foreign portfolio investors, insurance companies, and pension funds. By creating a structured regulatory regime for custodial services, SEBI aimed to enhance investor protection, reduce settlement risk, and promote the development of India’s capital markets through improved market infrastructure.

History & Legislative Evolution of SEBI (Custodian) Regulations

The SEBI (Custodian) Regulations 1996 were introduced during a crucial period of transformation in India’s capital markets. The 1990s marked the beginning of significant market reforms following India’s economic liberalization in 1991. This period witnessed the establishment of the National Stock Exchange (1992), the transition from physical certificates to dematerialized securities through the Depositories Act (1996), and the introduction of various institutional investor categories in the Indian market.

The regulations, formally notified as the SEBI (Custodian) Regulations, 1996, were promulgated under Section 30 of the SEBI Act, 1992, which empowers SEBI to make regulations consistent with the Act. Prior to these regulations, custodial services were provided in an unstructured manner, primarily by banking institutions without specialized regulatory oversight. The absence of a dedicated regulatory framework for custodians created inconsistency in service standards, ambiguity in responsibilities, and potential custody risk for investors.

The timing of the regulations coincided with the increasing participation of foreign institutional investors in Indian capital markets, who required custodial services meeting international standards. Simultaneously, domestic institutional investors like mutual funds were growing in significance, necessitating improved custody infrastructure.

Over the years, the SEBI (Custodian) Regulations, 1996 have evolved through several amendments:

1. The 2006 amendments enhanced capital adequacy requirements and clarified segregation obligations.
2. The 2012 revisions strengthened the reporting framework and internal control requirements.
3. The 2018 amendments refined the governance framework and enhanced disclosure standards.
4. The 2020 amendments addressed operational considerations in the digital environment and strengthened cyber security requirements.

This evolution reflects SEBI’s responsive approach to addressing emerging challenges while maintaining the fundamental principles of investor protection and market integrity.

Registration Framework Under SEBI (Custodian) Regulations, 1996

Chapter II: Registration Framework for Custodian under SEBI Regulations 

Chapter II of the regulations establishes the registration requirements for custodians. Regulation 3 states:

“No person shall act as custodian unless he has obtained a certificate of registration from the Board under these regulations:

Provided that nothing contained in this regulation shall apply to the Reserve Bank of India constituted under the Reserve Bank of India Act, 1934 (2 of 1934).”

This provision establishes SEBI’s regulatory authority over custodians while recognizing the special status of the Reserve Bank of India as the central bank.

Eligibility Criteria under SEBI Custodian Regulations

Regulation 7 outlines the comprehensive eligibility criteria for registration:

“The Board shall not grant a certificate of registration under regulation 6 unless the applicant satisfies the following conditions, namely:— (a) the applicant is a body corporate; (b) the applicant has the necessary infrastructure, including adequate office space, vaults for safe custody of securities and computer systems capability, required to effectively discharge his activities as custodian; (c) the applicant has the necessary expertise in the field of providing custodial services, including controlling and monitoring system for taking care of assets under his custody or control; (d) the custodian has necessary mechanisms for investor protection; (e) the applicant has professional qualification or experience in providing custodial services; (f) the applicant has a net worth of not less than rupees fifty crore; (g) the applicant furnishes its consent to the Board for inspection, by the Board, of its books of accounts, records and documents; (h) the grant of certificate to the applicant is in the interest of investors in the securities market; and (i) the applicant is a fit and proper person.”

These eligibility requirements reflect the critical role custodians play in the financial system, with emphasis on financial strength, operational capabilities, and professional expertise. The substantial net worth requirement (Rs. 50 crore, equivalent to approximately $6 million) ensures that only well-capitalized entities can operate as custodians, given the significant value of assets under custody and potential liabilities arising from operational failures.

Application and Registration Process for Custodians

Regulations 4-6 establish a comprehensive application process:

1. Detailed application containing information about business model, organizational structure, and risk management frameworks
2. Due diligence of key management personnel
3. Assessment of technological infrastructure and operational capabilities
4. Review of internal control systems and client protection mechanisms
5. Evaluation of financial resources and capital adequacy

Upon successful evaluation, SEBI grants a certificate of registration, typically valid for five years and subject to renewal. This structured entry screening ensures that only qualified entities with appropriate resources and expertise can function as custodians.

General Obligations and Responsibilities of Custodians under SEBI Regulations

Chapter III: Core Obligations for Custodians

Chapter III establishes fundamental obligations for custodians. Regulation 12 mandates the segregation of activities:

“Where a custodian is carrying on any activity besides that of acting as custodian, then the activities relating to his business as custodian shall be separate and segregated from all other activities and its operations and activities as custodian shall be conducted under the supervision of at least one director who shall not be directly engaged in the management or operations of any other activity.”

This provision ensures that custodial operations are insulated from other business activities the entity might undertake, preventing conflicts of interest and protecting client assets from potential risks arising from non-custodial businesses.

Client Agreement Requirements for Custodians

Regulation 13 mandates a written agreement with clients:

“Every custodian shall enter into an agreement with each client on whose behalf it is acting as custodian and every such agreement shall provide for the following matters, namely:— (a) the circumstances under which the custodian will accept or release securities, assets or documents from the custody account; (b) the circumstances under which the custodian will accept or release monies from the custody account; (c) the circumstances under which the custodian will receive rights or entitlements on the securities of the client; (d) the circumstances and the manner of registration of securities in respect of each client; (e) details of the insurance, if any, to be provided for by the custodian.”

This requirement ensures clarity regarding the custodian’s responsibilities and the operational parameters of the custodial relationship, preventing ambiguity that could lead to disputes or operational failures.

Monitoring and Compliance Obligations for Custodians

Regulation 14 requires robust internal monitoring:

“Every custodian shall have adequate internal controls to prevent any manipulation of records and documents including audits for securities and rights or entitlements arising from the securities held by it on behalf of its client.”

Additionally, Regulation 15 establishes record-keeping obligations:

“Every custodian shall maintain the following records and documents, namely:— (a) records of all securities received and released on behalf of each client; (b) records of all documents received and released on behalf of each client; (c) records of all monies received and released on behalf of each client; (d) records of all corporate actions initiated by the client through the custodian; (e) records of communication received from and sent to clients; (f) records of instructions received from and furnished to clients.”

These provisions create a comprehensive compliance framework ensuring operational discipline and the ability to reconstruct transaction histories when needed.

Segregation of Client Assets under SEBI Custodian Regulations

Regulation 16 establishes crucial asset segregation requirements:

“(1) Every custodian shall keep the securities of all clients separate from securities held by himself. (2) Every custodian shall keep the securities of each client separate, unless the client specifically directs otherwise in writing. (3) Every custodian shall: (a) keep securities which are held in dematerialised form in separate accounts; (b) register securities which are not held in dematerialised form in its own name as a custodian or in the name of its nominee but shall be easily identifiable as securities belonging to a specific client; and (c) not derive any benefits by way of securities lending or otherwise from the securities of a client unless specifically directed to do so by the client.”

This segregation requirement represents a cornerstone of custodial regulation, ensuring that client assets are protected from the custodian’s own business risks and preventing misappropriation or unauthorized use of client securities.

Code of Conduct for Ethical Custodial Practices

Schedule III contains a detailed code of conduct for custodians. Key provisions include:

1. Maintaining high standards of integrity, fairness, and due diligence
2. Exercising proper care in handling client assets
3. Avoiding conflicts of interest that could compromise client interests
4. Maintaining confidentiality of client information
5. Providing prompt and accurate information to clients
6. Cooperating with regulatory authorities

These ethical standards complement the operational requirements, creating a comprehensive framework for custodian behavior.

Landmark Judicial Interpretations on SEBI Custodian Regulations

Standard Chartered Bank v. SEBI (2010)

This SAT appeal addressed the fundamental nature of custodial responsibilities. Standard Chartered Bank had challenged SEBI’s order regarding certain operational deficiencies in its custodial services. The tribunal’s judgment established:

“The custodian’s role extends beyond mere physical safekeeping to encompass active monitoring and facilitation of the settlement process. The custodial obligation includes not merely the passive holding of assets but the exercise of due diligence in ensuring that client instructions are properly implemented within the parameters of regulatory requirements and market practices.

The segregation obligation under Regulation 16 requires not merely technical separation of accounts but substantive protection of client assets through appropriate operational controls, reconciliation processes, and governance mechanisms. This segregation represents the core of the custodial function and the primary protection mechanism for client assets.

The custodian’s responsibility includes maintaining appropriate verification processes for client instructions, particularly regarding the release of assets or execution of significant transactions. While the custodian is not expected to second-guess legitimate client instructions, it must maintain reasonable verification mechanisms to prevent fraud or operational errors.”

This judgment clarified that custodial responsibilities are substantive rather than merely procedural, requiring active diligence rather than passive compliance with technical requirements.

Deutsche Bank v. SEBI (2015)

This case focused on custodial obligations for foreign portfolio investors (FPIs). Deutsche Bank had sought clarification regarding its responsibilities in monitoring FPI compliance with Indian investment restrictions. The SAT judgment noted:

“The custodian’s role in the FPI context includes both transaction processing and certain compliance monitoring functions. While the primary responsibility for investment compliance rests with the FPI itself, the custodian serves as an important second line of defense in the regulatory framework by implementing pre-execution checks for clear regulatory breaches and post-trade monitoring for more complex compliance requirements.

The custodian must implement reasonable systems to identify obvious breaches of sectoral limits, aggregate investment caps, or prohibited investment categories before execution. However, this obligation is limited to reasonably detectable violations based on information available to the custodian and does not extend to complex determinations requiring information beyond the custodian’s reasonable access.

The custodian-client agreement must clearly delineate respective responsibilities regarding compliance monitoring, with specific attention to information flows, escalation procedures for potential violations, and resolution mechanisms for disputed interpretations of regulatory requirements.”

This judgment established important parameters regarding the custodian’s role in the regulatory compliance framework for foreign investors, balancing transaction facilitation with appropriate compliance monitoring.

HDFC Bank Custodial Services v. SEBI (2018)

This case addressed the segregation requirements under the regulations. HDFC Bank had challenged SEBI’s interpretation regarding operational segregation between custodial and other banking services. The tribunal held:

“The segregation requirement under Regulation 12 extends beyond mere legal or accounting separation to encompass operational independence, governance distinction, and functional separation. While housed within the same legal entity, the custodial business must maintain operational autonomy sufficient to ensure that conflicts of interest with other banking activities are appropriately managed and client assets are protected from risks arising from non-custodial operations.

This segregation must be reflected in: (a) dedicated management oversight through a director not involved in other banking operations; (b) separate operational teams and reporting lines; (c) distinct risk management and compliance frameworks; (d) information barriers preventing inappropriate access to custodial client information; and (e) separate record-keeping and audit trails.

The purpose of this segregation is not merely organizational but protective—ensuring that the custodial function maintains focus on client asset protection without being compromised by commercial pressures or conflicts from other banking activities.”

This judgment provided important clarification regarding the practical implementation of the segregation requirement, emphasizing its substantive protective purpose rather than merely formal compliance.

Institutional Framework and Market Structure

The SEBI (Custodian) Regulations 1996 have shaped a distinctive market structure for custodial services in India:

Market Participants

The custodial landscape has evolved to include several categories of service providers:

1. Global Custodian Banks: International financial institutions like Deutsche Bank, Standard Chartered, Citibank, and HSBC that provide custodial services as part of their global networks, primarily serving foreign portfolio investors and global asset managers.

2. Domestic Bank Custodians: Indian banks such as HDFC Bank, ICICI Bank, and State Bank of India that have established custodial service divisions serving domestic institutional investors.

3. Specialized Custodians: Entities focused exclusively on custody services without engaging in commercial banking, although this category remains limited in the Indian market.
   

The market exhibits significant concentration, with the top five custodians holding over 80% of assets under custody, reflecting the economies of scale and network effects in custodial services.

Service Evolution

Custodial services have evolved substantially since the regulations were introduced:

1. Core Services: Safekeeping of securities, settlement of transactions, asset servicing (corporate actions, income collection), and record-keeping remain the foundation of custodial offerings.

2. Enhanced Services: Fund accounting, compliance monitoring, performance measurement, securities lending facilitation, and collateral management have been added as value-added services.

3. Technology Integration: Substantial investments in technology platforms for transaction processing, reporting, and client interfaces have transformed service delivery models.

4. Cross-Border Capabilities: Enhanced capabilities for international investors, including market entry services, regulatory reporting, and tax reclamation assistance.
   

This service evolution reflects both competitive pressures and the growing sophistication of institutional investors in the Indian market.

Challenges & Future Outlook for SEBI (Custodian) Regulations

Despite significant progress, several challenges remain in the custodial services framework:

Digital Transformation

The transition to fully digital custody models presents both opportunities and challenges:

1. Dematerialization has eliminated many physical custody risks but introduced cybersecurity concerns.

2. Automation of transaction processing reduces operational errors but creates technology dependency risks.

3. Blockchain and distributed ledger technologies offer potential for enhanced efficiency but raise new regulatory questions about asset protection and legal certainty.

4. Digital asset custody for cryptocurrencies and tokenized securities remains a regulatory frontier requiring specialized custody solutions.
   

Recent regulatory attention has focused on cybersecurity standards for custodians, including mandatory security audits, incident response protocols, and business continuity requirements.

Liability Framework

The appropriate calibration of custodian liability continues to evolve:

1. Determining appropriate boundaries between custodian liability and client responsibility, particularly regarding investment decisions and compliance obligations.

2. Establishing clear standards for operational failures versus force majeure events.

3. Developing appropriate insurance frameworks for custodial risks.

4. Addressing liability in increasingly complex multi-custodian arrangements involving global custodians, sub-custodians, and central securities depositories.
   

Recent regulatory discussions have explored potential standardization of liability provisions in custodian agreements to create greater consistency and predictability.

Emerging Client Needs

As institutional investors evolve, custodial services face new requirements:

1. Alternative Assets: Traditional custody models designed for exchange-traded securities require adaptation for increasing allocations to alternative investments like private equity, real estate, and infrastructure.

2. ESG Integration: Growing focus on environmental, social, and governance factors creates demand for new data services, proxy voting support, and engagement assistance from custodians.

3. Data Analytics: Institutional investors increasingly seek enhanced data analytics from custodians beyond traditional reporting.

4. Cross-Border Efficiency: As Indian investors expand globally and foreign investors increase Indian allocations, demand grows for seamless cross-border custody solutions.

Regulatory frameworks may need to evolve to accommodate these emerging service areas while maintaining core investor protection principles.

Global Regulatory Convergence 

As financial markets become increasingly interconnected, cross-border regulatory coordination grows in importance:

1. Aligning Indian custodial standards with global frameworks like the Financial Stability Board’s recommendations and the principles established by the International Organization of Securities Commissions (IOSCO).

2. Addressing potential regulatory arbitrage between jurisdictions with different custodial requirements.

3. Establishing appropriate supervision models for global custodians operating across multiple regulatory regimes.

4. Developing consistent standards for emerging challenges like digital asset custody.
   

Recent international engagement by SEBI suggests movement toward greater harmonization with global standards while maintaining appropriate adaptation to India’s market context.

Conclusion 

The SEBI (Custodian) Regulations, 1996, have established a robust framework for custodial services in India’s capital markets. From their introduction during the formative years of India’s market reforms to the present day, these regulations have evolved to address emerging challenges while maintaining core principles of investor protection, segregation of assets, and operational diligence.

The regulations have successfully established custody as a specialized function with appropriate oversight, creating an essential component of market infrastructure serving institutional investors. The regulatory framework has balanced necessary prescription in critical areas like asset segregation with appropriate flexibility allowing for service innovation and market development.

As India’s capital markets continue to grow in size, sophistication, and international integration, the custodian regulatory framework will face ongoing challenges requiring further evolution. Digital transformation, emerging asset classes, and changing institutional investor needs will necessitate adaptive regulation that maintains investor protection while enabling innovation and efficiency.

The evolution of this regulatory framework reflects SEBI’s broader approach to market development—establishing necessary safeguards while promoting market maturation through appropriate infrastructure development. The SEBI (Custodian) Regulations, 1996 have played a significant role in establishing institutional investor confidence in India’s capital markets, contributing to market depth, efficiency, and global integration.

References

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