Form N-1A defines the required index in four moves, and each one closes a gap. Instruction 6 to Item 27A(d)(2) says an appropriate broad-based securities market index "is one that is administered by an organization that is not an affiliated person of the Fund, its investment adviser, or principal underwriter, unless the index is widely recognized and used." That is the independence condition. It then defines the adjective: a broad-based index "is an index that represents the overall applicable domestic or international equity or debt markets, as appropriate." That rules out a narrow slice chosen because the fund happens to look good against it. Third, the index is adjusted "to reflect the reinvestment of dividends on securities in the index," so income counts on both sides of the comparison. Fourth, and least intuitive, the instruction says to reflect those dividends "but do not reflect the expenses of the Fund." The index is therefore an un-costed yardstick measured against a fund whose reported return is net of what it charges.
The change-of-index rule is the one that reveals what the others are for. Instruction 8 provides that if a fund uses an index different from the one used for the immediately preceding period, it must explain the reason for the change and compare its results against both the new and the former index. A fund cannot quietly retire an unflattering comparison, because the switch itself becomes disclosure. Instruction 7 works the other way and is worth knowing so the requirement is not misread as a ban: a fund is encouraged to compare its performance with more narrowly based indexes reflecting the sectors it invests in, and may add another broad index or even a non-securities index such as the Consumer Price Index, so long as the comparison is not misleading. The broad-based index is a floor, not a ceiling.
Outside fund disclosure, a benchmark is whatever the person quoting it says it is, and that is where the reader has to do the work. A portfolio holding stocks and bonds together cannot be judged against a stock index, because most of the difference will come from the mix rather than from the choices inside it. A fund holding small companies compared with an index of large ones is being measured against a different market. The test is whether the yardstick is made of the same material as the thing being measured, over the same period, with income counted the same way on both sides.