2025-12-22
Added · Updated
Issued by the Non-Bank Financial Institutions Regulatory Authority (NBFIRA), these rules establish mandatory investment limits, policy frameworks, and risk management standards for all licensed Retirement Funds in Botswana. The regulations require Boards of Trustees to maintain diversified portfolios with at least fifty percent invested domestically, restrict borrowing to twenty-five percent for liquidity purposes, and permit derivatives strictly for efficient portfolio management or risk reduction. Funds must also implement robust Environmental, Social and Governance (ESG) integration, appoint dedicated risk, compliance, and AML/CFT officers, and submit periodic actuarial certifications to ensure long-term asset sustainability and fiduciary compliance.
NBFIRA/RS/RF/RUL013
| NBFIRA Non-Bank Financial Institutions Regulatory Authority | Document Name: PFR 2 - PENSION FUND INVESTMENT RULES | Unique Identification Number: NBFIRA/RS/RF/RUL002 |
|---|---|---|
| Process Owner | Director: Retirement Funds Regulatory Services | Signature: [Signature] Date: 19/07/2024 |
| Version: 0 | Review Frequency: 5 years | |
| Effective Date: 06/23 | ||
| Approved By | NBFIRA BOARD | Signature: [Signature] Commencement Date: 06/23 |
| Signed On Behalf of The Board By | NBFIRA CEO | Signature: [Signature] Approval Date: 21/7/2024 |
The purpose of this document is to establish and articulate the investment limits applicable to Retirement Funds, outlining the framework within which these Funds operate to ensure prudent financial management, risk mitigation, and the fulfillment of fiduciary responsibilities. These Rules are designed to safeguard the interests of Retirement Fund beneficiaries, enhance transparency, and promote the long-term sustainability of Retirement Fund assets.
These Rules are issued in terms of Section 64 of the Retirement Funds Act, 2022.
These Rules apply to all licensed Retirement Funds.
| Document | Reference |
|---|---|
| Fund Rules | |
| PFR8 Suitability of Retirement Fund Investments | |
| PFR10 - Minimum Standards and Conduct of Board of Trustees | |
| Retirement Funds Act & its Regulations | |
| Relevant Financial Services Laws |
means the Retirement Funds Act, 2022 and its Regulations
means an investment that does not fall into conventional asset category, such as cash, bond, equity, or property
means the governing body of a Fund
means either a government bond or a corporate bond
means cash in hand, bank notes issued or caused to be issued in terms of the Bank of Botswana Act, 1996 (Act No 19 of 1996), and credit balances
means a credit balance in an account or a deposit, including a negotiable deposit and a bill accepted by, or a promissory note issued by:
means a contract the purpose of which is to secure a profit or avoid a loss by reference to fluctuations in the value or price of:
means bonds, other than government bonds, which are issued by a body corporate registered in terms of the law.
means an asset whose price depends on or is derived from, the price of another asset, this Includes but is not limited to options, futures, and contracts for differences;
means the fair value of an asset determined by reference to the International Financial Reporting Standards
means cash in a currency which is not legal tender in Botswana
means a Retirement Fund as defined in terms of the Act
means a standardized contract the effect of which is that:
means securities issued by the Government of Botswana.
means a holding company according to the Companies Act.
means a system of public works including roads, air, rail, communication networks, water, power, and sewerage lines as well as public buildings.
means International Financial Reporting Standards developed and maintained by the International Accounting Standards Board
means listed on a stock exchange or similar trading facility, which is recognised generally by the international community of institutional investors
means organizations formed between three or more nations to work on development issues that relate to all the countries in the organization.
means a standardised contract the effect of which is that a person acquires the option:
means a company:
means a pooled investment scheme with specific strategies and finite investment horizons; used for making investments in various unlisted companies through equity and or debt instruments
means an interest in the capital of a company; including share stock
means:
means debt instruments issued by Multilateral Development Finance Organizations, of which Botswana is a member
| Abbreviation | Full Phrase |
|---|---|
| IFRS | International Financial Reporting Standards |
| SAA | Strategic asset allocation |
| AML/CFT | Anti Money Laundering/ Counter Terrorism Financing |
| ESG | Environmental, Social And Governance |
All licensed Retirement Funds.
The Board of Trustees are responsible for the investment of Funds. In pursuant of this role, the Board of Trustees shall invest fund assets in the best interest of the members and with the objectives of ensuring safety and maintenance of fair returns.
The Board of Trustees shall ensure that appropriate legal and financial due diligence are undertaken on all investment managers and other related service providers prior to investment.
The Board of Trustees shall ensure that appropriate legal and financial due diligence are undertaken on all investment managers and other related service providers prior to investment:
A Board of Trustees of a Fund shall have an investment policy for the Fund. The investment policy shall have an investment strategy which is to be submitted to the Regulatory Authority at the initial licensing stage and once every three (3) years or where there is a material change within a period of twelve (12) months.
The transfer of at least twenty (20) percent of the assets or liabilities into or out of the Fund; or
A change in valuation assumptions which has resulted in a change of more than twenty (20) percent to the actuarial values of either the assets or the liabilities.
The Board of Trustees shall consult experts with sufficient skill and experience to advise the Board of Trustees on an appropriate investment strategy, unless the Board of Trustees itself includes members with sufficient skills and experience to perform such function.
The Board of Trustees shall establish an investment strategy that shall take due account of:
The Board of Trustees shall review the investment strategy of a Fund, either when there is a material change to the Fund or in anticipation of a major change or, failing such a change, on at least an annual basis.
Where the strategy does not restrict pooled investment portfolios offered through insurance policies or collective investment undertakings:
where the Fund will be investing only in pooled investment portfolios offered through insurance policies or collective investment schemes, the strategy document shall set out the criteria with which such investment portfolios shall be selected and the manner in which, and the frequency with which, their performance shall be assessed. If performance assessment requires the use of a benchmark, such a benchmark shall be included in the document; and
An actuary shall confirm that he or she is satisfied that the strategy is consistent with the objectives of the Fund and management of the risks to which the Fund is exposed, and that the strategy will result in an appropriate relationship between the assets and the liabilities off the Fund. The actuary shall issue a certificate to this effect whenever the investment strategy is changed to a material extent, or, failing such a change, at least once every three (3) years, provided that:
In making investment decisions, the Board of Trustees is encouraged to consider the environmental, social and governance (ESG) factors, along with financial factors, that may contribute to achieving the long-term retirement objectives of fund members and their beneficiaries.
The Board of Trustees may include ESG investing factors in their investment strategies.
may represent physical risks that stem from the direct impact of natural catastrophes such as earthquakes or floods, climate change, greenhouse gas emissions, renewable energy, resource depletion, including wastewater and pollution and deforestation on the physical environment and individuals. These may, for example, affect resource availability, disrupt or damage supply chains, or damage property and assets because of severe weather droughts, (floods, storms, change of sea and water levels, deforestation, waste and pollution). They may also relate to transition risks that stem from the much wider set of changes in policy, law, markets, technology, investor sentiment and prices due to the transition towards a low-carbon economy.
Transition risks may therefore materialise in the repricing of carbon-intensive assets and reallocation of capital, adversely affecting asset owners and managers, including funds. A third group of risks related to climate change are liability risks that may affect insurers, governments and government agencies due to legal or moral responsibility to cover financial losses caused by climate-change-induced events.
Environmental issues may also provide opportunities such as access to new markets and new technologies.
relate to working conditions, including slavery and child labour; local communities, including indigenous communities; conflicts; health and safety issues (e.g., mining accidents); employee relations and diversity, discrimination in respect of employment and occupation, violations to freedom of association and the effective recognition of the right to collective bargaining, industrial actions (strikes).
relate to executive pay, the respect of the rule of law, bribery and corruption, political lobbying and donations, board diversity and structure, tax strategy, cybersecurity and accounting frauds. Typical issues relating to listed equity companies include board structure, size, diversity, skills and independence, executive pay, shareholder rights, stakeholder interaction, disclosure of information, business ethics, bribery and corruption, internal controls and risk management, and, in general, issues dealing with the relationship between a company’s management, its board, its shareholders and its other stakeholders.
In addition, governance issues regarding issuers can relate to anti-money laundering (AML) and combating the financing of terrorism (CFT) concerns. In the case of unlisted companies, governance issues also include matters of fund governance, such as the powers of Advisory Committees, valuation issues and fee structures, among others.
Governance issues may also provide opportunities for improving a Fund’s own governance.
Where ESG factors have been factored in the investment process, the Board of Trustees should include a narrative explaining how the ESG factors have been applied as part of their annual financial year end reporting.
7.6.2.1 A Fund shall not borrow without prior written consent of the Regulatory Authority.
7.6.2.2 Where the Regulatory Authority has issued such consent:
7.6.7.1 A Fund shall only invest in private equity fund or infrastructure fund where its investment policy or strategy recognises the private equity or infrastructure as an asset class.
7.6.7.2 Following a due diligence process, a Fund shall only invest its assets in private equity fund or infrastructure fund registered by the Regulatory Authority, or, in the event of offshore private equity funds registered or approved by the relevant offshore financial supervisory authority.
7.6.7.3 The due diligence process shall include, but not limited to:
7.6.7.4 A private equity fund or infrastructure fund shall have an advisory committee that shall represent its investors and may include independent members and or representatives from the fund manager. The advisory committee shall have a minimum of three (3) members with relevant expertise and or work experience in business management or investments.
7.6.7.5 A Fund shall invest in a local private equity fund with the overall strategy that promotes at least seventy (70) percent majority of investments in local portfolio companies at all times. Offshore private equity fund investment shall only be undertaken through offshore licensed private equity managers.
7.6.7.6 A Fund shall have a signed contract and service level agreement with a private equity or infrastructure fund, including but not limited to the provisions of the Rule regarding the appointment of a service provider as provided in PFR10 - Minimum Standards and Conduct of Board of Trustees and such copies shall be submitted to the Regulatory Authority within fourteen (14) days after signing.
7.6.7.7 Any material changes in the contracts or agreements shall be approved by the advisory committee and the parties to the contracts or agreements.
7.6.7.8 A Fund shall only invest in infrastructure through a specialist-private-equity type of fund, public-private partnership, infrastructure bond, or such investment fund listed on the Botswana Stock Exchange.
| Asset Category | Total Limit (Percent) | Per Issuer (Percent) |
|---|---|---|
| Total Cash exposure: 60 percent | ||
| Local cash | 20 | 7 |
| Foreign cash | 40 | 5 |
| Botswana Government Debt Instruments | ||
| Bills, bonds, or securities guaranteed by or issued by the government of Botswana, including supra-national bonds. | 100 | N/A |
| Bills, bonds, or securities guaranteed by or issued by corporate body established by Act of Parliament or local authority in Botswana that is approved by the Regulatory Authority. | 20 | 5 |
| Bills, bonds, or securities guaranteed by or issued by the development bank. | 20 | 5 |
| Local Corporate Bonds | ||
| Total Listed and Unlisted corporate bonds | 40 | N/A |
| Corporate Bonds Listed on the Botswana Stock Exchange provided that the Regulatory Authority has approved & the listing criteria; | 35 | 5 |
| Unlisted Corporate Bonds where the Regulatory Authority issued a notice of no objection. | 5 | 5 |
| Total exposure to Foreign Bonds (government local authorities and corporate) | ||
| Foreign bonds | 50 | 5 |
| Property (Local and Offshore) | ||
| Immovable property, units in property collective investment undertakings, and shares in, loans to and debentures, both convertible and non-convertible, of, property companies, in Botswana or deemed to be in Botswana. | 25 | 5 |
| Listed units in property undertakings and debentures, both convertible and non-convertible, of, property companies, outside Botswana. | 10 | 5 |
| Local Equity | ||
| Preference and ordinary shares in companies (excluding property companies), convertible debentures, whether voluntarily or compulsorily convertible (but excluding such debentures of property companies), and units in collective investment schemes (but excluding units in collective investment schemes invested primarily in property shares). | 70 | n/a |
| Shares and convertible debentures in a single company listed on the Botswana Stock Exchange | Market Cap< P500m- 5% <br>Market Cap>500m <br>P1 500m-10% <br>Market Cap >1 500m -15% | |
| Unlisted Shares | 20 | 5 |
| Paid up shares in a building society | 10 | |
| Loans and equity investment within Botswana in the sponsoring employer or related party, in terms of Section 34 (3) of the Retirement Funds Act | 5 | N/A |
| Offshore Equity | ||
| Listed shares in foreign companies listed on a foreign stock exchange | 50 | 5 |
| Unlisted shares in foreign companies | 5 | 2.5 |
| Commodities | ||
| Instruments based on the value of an underlying commodity commodities, where the instruments are settled in cash (in aggregate for all such instruments) | 10 | Per commodity -5% per instrument 5% |
| Alternative Investments | ||
| Exposure to alternative investments | 25 | N/A |
| Hedge Funds and other assets not listed in the Rules | 5 | 2.5 per hedge fund |
| Funds of hedge funds | - | 2.5 per fund of hedge funds |
| Local private equity fund | 10 | 2.5 |
| Offshore private equity fund | 5 | 2.5 |
| Local infrastructure fund | 5 | 2.5 |