The Andhra Pradesh Micro Finance Institutions (Regulation of Money Lending) Act, 2011

ANDHRA PRADESH MICRO FINANCE INSTITUTIONS (REGULATION OF 

MONEY LENDING) ACT, 2011 

(ACT NO. 1 OF 2011) 

ARRANGEMENT OF SECTIONS 

SECTIONS 

1. Short title, extent and commencement 

2. Definitions 

3. Register of MFIs 

4. Register of MFIs 

5. Power to suspend/ cancel registration 

6. Member of SHG not to be member of more than one SHG  

7. MFIs not to seek security for loan 

8. Display of rates of interest charged by MFIs 

9. Maximum amount of interest recoverable on loans and discharge of 

loans in certain cases 

10. Prior approval for grant of further loans to SHGs or their members 

11. Duty of MFIs to maintain accounts and furnish copies 

12. Submissions of monthly statement by MFIs 

13. Power to require production of records or documents and power of 

entry, inspection and seizure 

14. Complaints 

15. Settlement of Disputes 

16. Penalty for coercive actions MFIs 

17. Penalty for carrying on business without registration 

18. Penalty for contravention of the provisions of the Act 

19. Every officer to be public servant 

20. Bar of certain proceedings 

21. Power to remove difficulties 

22. Power to give directions 

23. Power to make rules 

24. Annual Report on the administration of the Act 

         25. Repeal of Ordinance 9 of 2010   



 

ANDHRA PRADESH MICRO FINANCE INSTITUTIONS (REGULATION OF 

MONEY LENDING) ACT, 2011 

(ACT NO. 1 OF 2011) 

[01 January, 2011] 

AN ACT TO PROTECT THE WOMEN SELF HELP GROUPS FROM 

EXPLOITATION BY THE MICRO FINANCE INSTITUTIONS IN THE STATE 

OF ANDHRA PRADESH AND FOR THE MATTERS CONNECTED 

THEREWITH OR INCIDENTAL THERETO. 

 Whereas, Government of Andhra Pradesh has facilitated organization of 

the below poverty line households into Self Help Groups (SHG) for the purpose 

of their economic advancement by achieving financial inclusion through linking 

with the banking network; 

 And whereas the endeavor of the State is to protect the interests of SHGs 

and relieve them from the undue hardship by regulating money lending 

transactions by the money lending MFIs, who are providing loans to SHGs with 

usurious interest rates and resorting to coercive means of recovery resulting in 

impoverishment and at times leading to suicides of the borrowers. 

 BE it enacted by the Legislature of the State of Andhra Pradesh in the 

Sixty first year of the Republic of India as follows:- 

1. Short title, extent and commencement. - (1) This Act may be called the 

Andhra Pradesh Micro Finance Institutions (Regulation of Money Lending) Act, 

2011. 

 (2) It extends to the whole of the State of Andhra Pradesh. 

 (3) It shall be deemed to have come into force with effect from the 15th 

October, 2010. 

 (4) It shall apply to Micro Finance Institutions whether they had come 

into existence before or after the commencement of this Act. 

2. Definitions. - In this Act, unless the context otherwise requires,- 

 (a) 'Government' means the State Government of Andhra Pradesh; 

 (b) 'Interest' for the purposes of the terms defined under the provisions 

of this Act would mean a return on the amount lent by the MFI to a SHG; 

 (c) 'Loan' means an advance whether of money or in kind given to the 

borrowing SHG at interest, whether given before the commencement of this Act 

or after such commencement and includes advance, discount, money paid for 

or on account of or paid on behalf of or at the request of any person, or any 

account whatsoever, and every agreement (whatever its terms or form may be) 

which is in substance or effect a loan of money or in kind given to an SHG and 

further includes, an agreement relating to the repayment of any such loan; 

 (d) 'Micro Finance Institution (MFI)' means any person, partnership 

firm, group of persons, including a Company registered under the provisions of 

the Companies Act 1956, (Central Act 1 of 1956) a Non-Banking Finance 

Company as defined under the Reserve Bank of India Act, 1934, (Central Act 2 



of 1934) a Society registered under the Andhra Pradesh Co-operative Societies 

Act, 1964, (Act 7 of 1964) or the Andhra Pradesh Societies Registration Act, 

2001 (Act 35 of 2001) and the like, in whichever manner formed and by 

whatever name called, whose principal or incidental activity is to lend money or 

offer financial support of whatsoever nature to the below poverty line 

population; 

 (e) 'Notification' means a notification published in the Andhra Pradesh 

Gazette and the word 'notified' shall be construed accordingly; 

 (f) 'Prescribed' means prescribed by rules made by Government under 

this Act; 

 (g) 'Registering Authority' means the Project Director, District Rural 

Development Agency for the rural areas and Project Director, MEPMA for 

Urban areas; or any other person appointed by the District Collector to perform 

the functions of a registering authority under this Act for such District; 

 (h) 'Registration' means registration granted to a MFI under this Act; 

 (i) 'Self Help Group (SHG)' means a group of women formed on 

principles of self help and registered as such with the Society for Elimination of 

Rural Poverty (SERP) in the rural areas or Mission for Elimination of Urban 

Poverty in Municipal areas (MEPMA) in urban areas; 

 (j) 'SHG bank linkage' means provision of credit for the SHGs by the 

commercial banks based on a micro credit plan prepared by the SHGs for 

carrying out economic activities; 

 (k) 'SHG Member' means a registered member of a SHG who intends to 

avail a loan through such SHG and thus a borrower under the provisions of 

this Act; 

 (l) 'Society for Elimination of Rural Poverty (SERP)' is a Society 

formed by Government for the purpose of implementing pro-poor initiatives and 

thereby eliminating poverty in rual areas; 

 (m) 'Society under Mission for eliminating poverty in municipal 

areas (MEPMA)' is a Society formed by Government for the purpose of 

implementing pro-poor initiatives and thereby eliminating poverty in urban 

areas; 

 (n) Words used but not defined in this Act, shall have the same meaning 

assigned to them under the relevant Acts. 

3. Register of MFIs. - (1) All Micro Finance Institutions operating in the State 

of Andhra Pradesh as on the date of the commencement of this Act, shall 

within thirty days from the date of commencement of this Act, apply for 

registration before the Registering Authority of the district specifying therein 

the villages or towns in which they have been operating or propose to operate, 

the rate of interest being charged or proposed to be charged, system of 

conducting due diligence and system of effecting recovery and list of persons 

authorized for conducting the activity of lending or recovery of money which 

has been lent. 

 (2) No MFIs, operating at the commencement of this Act or intending to 

start the business of lending money to SHGs, after the commencement of this 



Act, shall grant any loans or recover any loans without obtaining registration 

under this Act from the Registering Authority. 

 (3) The Registering Authority shall conduct verification of the details 

furnished by the MFI and accord registration in such manner as may be 

prescribed for operation of MFIs for a period of one year, after obtaining a 

written undertaking from the MFI that it shall always act in conformity with 

the provisions of this Act. 

 (4) Where the MFI applies for renewal of registration, an application for 

that purpose shall be filed by the MFI within sixty days before the expiry of the 

period of one year referred to in sub-section (3) and the Registering Authority 

shall decide either to grant renewal or refuse renewal of registration within 

fifteen days before the date of expiry of registration, after due verification of the 

performance of the MFIs in the field level and after hearing objections, if any, 

from the general public regarding extension of Registration. 

4. Register of MFIs. - (1) Every registering authority shall maintain for the 

area under its jurisdiction registers of all MFIs having valid registration in such 

form as may be prescribed. 

 (2) The registers maintained under sub-section (1) shall be published in 

such manner and at such intervals as may be prescribed. 

5. Power to suspend/ cancel registration. - (1) The Registering Authority 

may, at any time, either suo moto or upon receipt of complaints by SHGs or its 

members or by members of the public cancel the registration of an MFI after 

assigning sufficient reasons for such cancellation: 

 Provided that no order of cancellation of the Registration shall be passed 

without issuing notice to the MFI intimating the facts upon which the prima- 

facie decision to cancel the registration has been taken and the MFI shall be 

afforded a reasonable opportunity to show cause against such notice. 

Explanation. - For the purposes of sub-section (1), conviction of a MFI for an 

offence of violation of any of the provisions of this Act shall be sufficient cause 

for suspension or cancellation of its registration. 

 (2) Pending enquiry under sub-section (1), the Registering Authority may, 

for sufficient reasons to be recorded, suspend the registration, of an MFI. 

6.Member of SHG not to be member of more than one SHG - No member of 

an SHG shall be a member of more than one SHG, provided that where a 

member has, at the commencement of this Act, become a member of more than 

one SHG, she shall have the option to retain the membership of one SHG and 

to terminate her membership in other SHGs and for that purpose, she shall 

issue a notice to such SHGs about her option to terminate her membership, 

settle and pay the amount payable to the MFIs which had lent monies to such 

SHGs, within a period of three months from the date of commencement of this 

Act. 

7. MFIs not to seek security for loan. - No MFI shall seek any security from a 

borrower by way of pawn, pledge or other security for the loan: 

 Provided that any such security obtained from a borrower before the 

commencement of this Act shall forthwith stand released in favour of the 

borrower. 



8. Display of rates of interest charged by MFIs. - (1) All MFIs shall display 

the rates of interest charged by them in a conspicuous place in their premises 

in bold letters visible to the members of the public. 

 (2) No MFI shall charge any other amount from the borrower except any 

charge prescribed in the rules for submission of an application for grant of a 

loan. 

9. Maximum amount of interest recoverable on loans and discharge of 

loans in certain cases. - (1) No MFI shall recover from the borrower towards 

interest in respect of any loans advanced by it, whether before or after 

commencement of this Act, an amount in excess of the principal amount. 

 (2) All loans in respect of which an MFI has realized from the borrower, 

whether before or after commencement of this Act, an amount equal to twice 

the amount of the principal, shall stand discharged and the borrower shall be 

entitled to obtain refund and the MFI shall be bound to refund the excess 

amount paid by the borrower. 

10. Prior approval for grant of further loans to SHGs or their members. - 

(1) No MFI shall extend a further loan to a SHG or its members where the SHG 

has an outstanding loan from a Bank unless the MFI obtains the prior approval 

in writing in such manner as may be prescribed from the Registering Authority 

after making an application seeking such approval. 

 (2) The Registering Authority while considering such application from an 

MFI seeking approval as aforesaid, shall secure the following information in 

writing from the MFI in regard to every member of SHG namely; - 

(i) name of the Borrower; 

(ii) name of the SHG; 

(iii) bank from which loan has been obtained by the SHG; 

(iv) date of the loan granted by the bank; 

(v) amount paid to the SHG by the bank; 

(vi) amount due from the SHG; 

(vii) fresh amount of loan sought by the SHG from the MFI; 

(viii) terms of repayment proposed by the MFI; 

(ix) details of due diligence including the capacity of the SHG for 

repayment; and 

(x) such other details as may be prescribed. 

 (3) The Registering Authority shall, not later than fifteen days from the 

date of filing of such application for approval under sub-section (2), cause an 

enquiry into the contents of the application and shall grant approval for further 

loan unless the Registering Authority is satisfied that the SHG and its 

members have passed a resolution that they have understood the conditions of 

the loan and terms of repayment and unless the Registering Authority is also 

satisfied that such further loan would generate additional income to the SHG 

and its members, needed for servicing the debt. 



 (4) No MFI shall grant loan to a member of SHG during the subsistence 

of two previous loans irrespective of the source of the previous two loans. 

11. Duty of MFIs to maintain accounts and furnish copies. - (1) All 

borrowings by a member of an SHG from an MFI shall be contracted in the 

manner, form and format prescribed under the Act. 

 (2) Every MFI shall keep and maintain a cash book, a ledger and such 

other books of account in such form and in such manner as may be 

prescribed. 

 (3) Every MFI shall, - 

  (a) deliver or cause to be delivered, to the borrower within seven 

days from the date on which a loan is made, a statement in the prescribed form 

showing in clear and distinct terms the amount and date of the loan and of its 

maturity, the name and address of the functionary of the MFI and the effective 

rate of interest charged; 

  (b) upon repayment of a loan in full, the MFI shall obtain an 

indelible mark on every paper signed by the borrower with words indicating 

such repayment and provide copies thereof to the borrower. 

 (4) No MFI shall receive any payment from a borrower on account of any 

loan without giving him a duly signed receipt for the payment. 

 (5) An MFI shall, on a demand in writing by the borrower, supply a copy 

of any document relating to a loan obtained by him, or if the borrower so 

requires, to any person specified in that behalf in the demand: 

 Provided that in respect of loans given prior to the commencement of this 

Act, it shall be obligatory for the lender to specify if any security was accepted 

from the borrower. 

 (6) All tranches of repayment shall be made by the SHG or its members 

at the office of the Gram Panchayat or at a public place designated by the 

District Collectors only. 

 (7) MFI shall not deploy any agents for recovery nor shall use any other 

coercive action either by itself or by its agents for recovery of money from the 

borrower; and any form of coercive recovery including but not limited to visiting 

the house of the borrower shall, apart being punishable under the provisions of 

the Act, empower the Registering Authority to suspend or cancel the license of 

such an MFI as provided in section 5. 

12. Submissions of monthly statement by MFIs - Every MFI shall submit a 

Monthly Statement to the Registering Authority before 10th day of every month 

giving therein the list of borrowers, the loan given to each and the interest rate 

charged on the repayment made. 

13. Power to require production of records or documents and power of 

entry, inspection and seizure - (1) The Registering Authority or any officer 

authorised by him in this behalf may, to verify whether the business of the MFI 

is being carried on in accordance with the provisions of this Act, enter the 

premises of the MFI office or of any person who in his opinion is carrying on 

the business of lending and call upon him to produce any record or document 

relating to such business and every such MFI shall allow such inspection and 

produce such record or document. 



 (2) The Registering Authority may, for the purposes of sub-section (1), 

search the premises and seize any record and document as may be necessary 

and the record or document seized shall be retained only for such period as 

may be necessary for the purposes of examination, prosecution or other legal 

action: 

 Provided that the provisions of sections 100 and 102 of the Code of 

Criminal Procedure, 1973 (Central Act 2 of 1974) shall, so far as may be, apply 

to such search and seizure. 

 (3) The registering authority or the other officer referred to in sub-section 

(1) shall also have power to summon and examine the MFI or any person who 

in his opinion is in a position to furnish relevant information. 

14. Complaints - Any SHG or its members or any member of the public can 

file a complaint regarding violation of the provision of this Act by a MFI before 

the Registering Authority and the said Authority shall enquire into the same 

after giving a reasonable opportunity to the MFI to show cause and pass such 

orders as it may deem fit including an order under section 5 of the Act. 

15. Settlement of Disputes - (1) For the protection of debtors and for the 

settlement of disputes of civil nature between the SHG or its members on the 

one hand and the MFI on the other hand or between the members of the SHG 

and the SHG, in relation to the loans granted under this Act to the SHG or its 

members, the State Government after consultation with the High Court, and by 

notification,- 

  (a) shall, as soon as may be after the commencement of this Act, 

establish for every district in the State a Fast-Track Court; 

  (b) may establish Fast-Track Court for such other areas in the 

State, as it may deem necessary. 

 (2) The Government shall, after consultation with the High Court of 

Andhra Pradesh specify, by notification, the local limits of the area to which the 

jurisdiction of a Fast-Track Court shall extend and may, at any time, increase, 

reduce or alter such limits. 

 (3) The cases that may be filed before the Fast-Track Court shall be 

disposed of with in a period of three months. 

 (4) The decree of the Fast Track Courts shall be liable to be executed in 

accordance with the procedure under the Code of the Civil Procedure 1908 

(Central Act 5 of 1908). 

16. Penalty for coercive actions MFIs - (1) All persons who are connected 

with and responsible for the day-to-day control, business and management of a 

MFI including the Partners, Directors and the employees who resort to any type 

of coercive measures against the SHGs or its members or their family members 

shall be liable for punishment of imprisonment which may extend up to a 

period of three years or with fine which may extend to one lakh rupees or with 

both. 

Explanation. - For the purposes of this section, "coercive action" by an MFI 

against the SHGs or its members of their family members include the 

following,- 



  (a) obstructing or using violence to, insulting or intimidating the 

borrower or his family members, or 

  (b) persistently following the borrower or his family member from 

place to place or interfering with any property owned or used by him or 

depriving him of, or hindering him in the use of any such property, or 

  (c) frequenting the house or other place where such other person 

resides or works, or carries on business, or happens to be, or 

  (d) doing any act calculated to annoy or intimidate such person or 

the members of his family, or 

  (e) moving or acting in a manner which causes or is calculated to 

cause alarm or danger to the person or property of such other person, or 

  (f) seeking to remove forcibly any document from the borrower 

which entitles the borrower to a benefit under any Government programme: 

 Provided that a person who frequents the house or place referred to in 

clause in order merely to obtain or communicate information shall not be 

deemed to be using coercive action. 

 (2) The MFI or the persons who use coercive actions as stated in sub- 

section (1) shall be prosecuted in accordance with the provisions of this Act. 

 (3) The provisions of the code of Criminal Procedure, 1973, shall, so far 

as may be, apply to the proceedings before a Fast Track Court, and for the 

purpose of the said provisions, a Fast Track Court shall be deemed to be a 

Magistrate. 

17. Penalty for carrying on business without registration - All persons who 

are connected with and responsible for the day-to-day control, business and 

management of a MFI including the Partners and Directors of such MFI which 

carries on the business of providing loans either without obtaining registration 

of the MFI from the Registering Authority under section 3 or extending a 

further loan without prior approval under sub-section (1) of section 10 of the 

Act or granting loan in violation of sub-section (4) thereof, shall be liable for 

punishment with imprisonment for a term which may extend to three years 

and with fine which may extend to rupees one lakh. 

18. Penalty for contravention of the provisions of the Act - Any person who 

contravenes any provision other than section 3 and section 16 of this Act, shall 

be punishable with imprisonment for a period of six months or with fine which 

may extend to ten thousand rupees or with both. 

19. Every officer to be public servant - Every officer of the Government and 

every person acting under the provisions of this Act shall be deemed to be a 

public servant within the meaning of section 21 of the Indian Penal Code, 1860 

(Central Act 45 of 1860). 

20. Bar of certain proceedings - (1) No suit, prosecution or other proceedings 

shall lie against any officer or employee of the Government for any act done or 

purporting to be done under this Act, without the previous sanction of the 

Government. 



 (2) No suit, prosecution or other legal proceedings shall be instituted 

against any person for anything which is, in good faith, done or intended to be 

done under this Act or the rules made thereunder. 

21. Power to remove difficulties - If any difficulty arises in giving effect to the 

provisions of this Act, the Government may, by notification remove difficulties 

by orders not inconsistent with the provisions of this Act, but which appear to 

them to be necessary or expedient to remove such difficulty. 

22. Power to give directions - The Government may, from time to time, issue 

such orders, instructions and directions not inconsistent with the provisions of 

this Act and the rules made thereunder to the officers for the proper 

administration of the Act, and such officers and all other persons employed in 

the enforcement of the Act, shall comply with such orders, instructions and 

directions. 

23. Power to make rules - (1) The State Government may, by notification, 

make rules for carrying out the purposes of this Act. 

 (2) Every rule made under this Act shall, immediately after it is made, be 

laid before the Legislature of the State, if it is in session and if it is not in 

session, in the session immediately following for a total period of fourteen days 

which may be comprised in one session or in two successive sessions and if, 

before the expiration of the session in which it is so laid or the session 

immediately following the Legislature agrees in making any modification in the 

rule or in the annulment of the rule, the rule shall, from the date on which the 

modification or annulment is notified, have effect only in such modified form or 

shall stand annulled as the case may be so, however, that any such 

modification or annulment shall be without prejudice to the validity of anything 

previously done under the rule. 

24. Annual Report on the administration of the Act - The Government shall 

prepare an annual report on the administration of this Act and the same shall 

be placed before the State Legislature. 

25. Repeal of Ordinance 9 of 2010 - The Andhra Pradesh Micro Finance 

Institutions (Regulation of Money Lending) Ordinance, 2010 is hereby repealed. 

 

                                                 A. SHANKAR NARAYANA, 

      Secretary to Government, 

     Legislative Affairs & Justice, 
          Law Department