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Issues: (i) Whether the Department's appeal under Section 37A(5) of the Foreign Exchange Management Act, 1999 was maintainable; (ii) whether subscription to shares and subsequent transfer by gift of the foreign company's equity amounted to holding of foreign security in contravention of Section 4 of the Foreign Exchange Management Act, 1999; and (iii) whether the seizure under Section 37A of the Foreign Exchange Management Act, 1999 could be maintained only to the extent of value equivalent of the foreign security and not beyond it.
Issue (i): Whether the Department's appeal under Section 37A(5) of the Foreign Exchange Management Act, 1999 was maintainable.
Analysis: The statutory scheme of Section 37A had to be read as a whole. The opportunity of hearing under sub-sections (3) and (4) to both sides, coupled with the Supreme Court's direction that the Appellate Authority decide the Department's appeal under Section 37A(5), supported a construction that did not exclude the Department from appellate recourse. A restrictive reading would defeat the purpose of the provision and create an inconsistency within the section.
Conclusion: The Department's appeal was held maintainable.
Issue (ii): Whether subscription to shares and subsequent transfer by gift of the foreign company's equity amounted to holding of foreign security in contravention of Section 4 of the Foreign Exchange Management Act, 1999.
Analysis: The record showed that the foreign company had allotted ordinary shares, the shareholders and directors were identified in the financial statements, and the shares were reflected as fully paid in the company accounts. Even if the initial arrangement was described as subscription, it conferred valuable rights and was treated as direct investment outside India under the foreign security regulations. The transfer by gift also demonstrated that the holding had value and was capable of being transferred. The reasoning that the shares had zero value and therefore were outside Section 4 was rejected.
Conclusion: The holding of the foreign security was found to attract Section 4 of the Foreign Exchange Management Act, 1999, and the challenge to the seizure was not accepted in full.
Issue (iii): Whether the seizure under Section 37A of the Foreign Exchange Management Act, 1999 could be maintained only to the extent of value equivalent of the foreign security and not beyond it.
Analysis: Section 37A authorises seizure only of value equivalent situated within India of the foreign security held outside India. The objective is to secure the equivalent value and not to permit multiple or excessive seizures for the same underlying foreign security. On the facts, the seizure already made against certain respondents was adequate, but the seizure against the other respondents was not wholly sustainable to the extent it exceeded the permissible equivalent value.
Conclusion: The seizure was upheld for the amount already representing the permissible equivalent value and was set aside to the extent stated by the Tribunal.
Final Conclusion: The appeal was allowed only in part, with the Tribunal sustaining the legal basis of the proceedings while modifying the impugned order to preserve seizure only to the extent of the permissible value equivalent and to the extent specifically upheld against the concerned respondents.
Ratio Decidendi: For the purpose of Section 37A of the Foreign Exchange Management Act, 1999, subscription rights in a foreign company that confer transferable and valuable interests constitute foreign security, and seizure in India can extend only to the value equivalent of such holding, not beyond that limit.
Foreign security under FEMA includes transferable subscription rights, and seizure is limited to the equivalent value in India.
Subscription rights in a foreign company that confer transferable and valuable interests were treated as foreign security, so the challenge to action under FEMA failed on that point. The Tribunal held that the Department's appeal under Section 37A(5) was maintainable after reading Section 37A as a whole. It also rejected the argument that the shares had zero value, finding that allotment, reflection in company accounts, and later gift transfer showed a real holding of foreign security. However, seizure under Section 37A can extend only to the value equivalent of the foreign security situated in India, so excessive seizure beyond that limit was modified.
Maintainability of departmental appeal under Section 37A(5) - Reason to believe - foreign security situated outside India - Subscription to shares and subsequent transfer by gift of the foreign company's equity - Foreign security in contravention of Section 4 - Equivalent value seizure - legality of the Order of Seizure - Denial of the Appellant an opportunity to counter the issues raised by the Respondents - infringement of the principles of natural justice. Maintainability of departmental appeal under Section 37A(5) - Harmonious construction of statutory provisions - HELD THAT: - The Tribunal held that Section 37A could not be read in isolated sub-sections so as to confer hearing rights on the Directorate of Enforcement before the Competent Authority and yet deny it any right to challenge the resulting order. The provision had to be construed harmoniously as a whole to avoid defeating its purpose and offending principles of natural justice. This view was reinforced by the express direction of the Supreme Court requiring the Tribunal to decide the departmental appeal under Section 37A(5). [Paras 23, 24] The preliminary objection to maintainability was rejected and the appeal was held to be competent. Foreign security - Subscription to memorandum of association as direct investment outside India - Holding and transfer of unpaid shares - HELD THAT: - On examining the financial statements and notes of the Singapore company, the Tribunal found that the company had issued ordinary shares classified as equity, that the share capital stood reflected at SGD 10,000,000, and that the shares carried an ascribed value of SGD 1 each. Even without returning a final finding on whether the consideration had actually been paid, the Tribunal held that the shares could not be treated as valueless paper, since the allotment and subscription conferred rights and entitlements and were in fact transferred by gift or for stated consideration. Referring to Regulation 2(e) of the Foreign Exchange Management (Transfer or Issue of any Foreign Security) Regulations, 2004, the Tribunal held that subscription to the memorandum of association of a foreign entity itself amounts to direct investment outside India and is to be treated on par with purchase of existing shares of a foreign entity. It therefore held that the Competent Authority erred in proceeding on the basis that only paid-up shares could amount to foreign security, since Section 4 does not make payment a condition for acquisition, holding, ownership, possession or transfer. On the admitted facts and supporting documents, the respondents had acquired, held and transferred the shares, and the Authorised Officer had reason to believe that contravention of Section 4 was suspected. [Paras 29, 30, 31, 32, 33] The finding of the Competent Authority that no share of any value was held in Singapore and that there was no violation of Section 4 was held to be erroneous. Equivalent value seizure - Prohibition against multiple seizure for same foreign security - HELD THAT: - The Tribunal held that Section 37A is a temporary securing measure intended to seize, within India, value equivalent to the foreign security situated outside India, pending adjudication. Its object is met once equivalent value is secured, and the provision does not authorise seizure exceeding that value. The Department's contention that acquisition and transfer were separate contraventions justifying separate seizures was rejected, because transfer by gift only changes the holder while the same foreign security continues to exist; it does not justify seizure of equivalent value more than once. On that basis, seizure could be sustained only against the persons who, on the Tribunal's findings, continued to hold the foreign security, and not against those who had already divested their holdings. [Paras 34, 35] The impugned order was set aside only to the extent it vacated seizure of the properties standing in the names of the daughter and son, while the order vacating seizure in the names of the father and the deceased wife was upheld. Final Conclusion: The Tribunal held that the departmental appeal under Section 37A(5) was maintainable, and that the foreign share subscription and transfers could not be treated as valueless or outside the scope of foreign security under FEMA. The appeal was partly allowed by restoring seizure only to the extent of the equivalent value of foreign security held by the daughter and son, while upholding vacation of seizure in the names of the father and the deceased wife.