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Issues: (i) Maintainability of the writ petitions despite the statutory remedy under FEMA; (ii) Applicability of Section 37A to an arrangement originating before its commencement but involving later payments; (iii) Whether the connected fund movements supplied jurisdictional facts for action under Section 4 read with Section 37A; (iv) Whether the seizure order recorded a valid reason to believe and could be supported by subsequent explanatory material; (v) Effect of regulatory and income-tax treatment of the transactions on the FEMA seizure; (vi) Validity of the NOC refusal under Rule 10 in the absence of disclosed reasons and a demonstrable nexus, including reliance on a subsequent seizure order.
Issue (i): Maintainability of the writ petitions despite the statutory remedy under FEMA.
Analysis: The alternative-remedy rule is discretionary and does not exclude writ review where the challenge concerns jurisdictional facts or the legality of the decision-making process. The seizure challenge raised the threshold applicability of Section 37A and the existence of recorded reasons, while the NOC rejection was challenged for absence of reasons and lacked an appellate remedy.
Conclusion: Both writ petitions were maintainable. Review of the seizure was confined to jurisdictional and decision-making issues, while the NOC rejection was amenable to review for breach of fair administrative action.
Issue (ii): Applicability of Section 37A to an arrangement originating before its commencement but involving later payments.
Analysis: Section 37A is prospective and cannot be applied to transactions completed before its commencement merely because their consequences continued. However, actual payments made after the provision came into force were distinct subsequent acts, not merely the subsistence of an earlier liability, and were alleged to be part of the connected arrangement under investigation.
Conclusion: Section 37A could not retrospectively govern the completed transactions of 2015, but it could be invoked with reference to the subsequent payments made after its commencement. This issue was decided against the assessee.
Issue (iii): Whether the connected fund movements supplied jurisdictional facts for action under Section 4 read with Section 37A.
Analysis: The foreign borrowings, NCD subscription, immediate onward transfer of NCD proceeds, share acquisition, subsequent amalgamation and later repayment of principal and interest were capable of being assessed as one connected arrangement under the substance-over-form approach. The rupee denomination of the NCDs, FPI status of the subscriber, and formal regulatory compliance did not preclude scrutiny of the alleged closed-loop movement of funds and round-tripping. These circumstances provided a prima facie basis to examine whether foreign exchange had been dealt with in contravention of Section 4; final proof remains for the statutory authority.
Conclusion: The material supplied the jurisdictional factual foundation for action under Section 37A and examination under Section 4. This issue was decided against the assessee, without finally determining the alleged contravention.
Issue (iv): Whether the seizure order recorded a valid reason to believe and could be supported by subsequent explanatory material.
Analysis: The seizure order itself recorded the connected movement of funds, their return to the foreign lender, the alleged absence of genuine capital infusion, and the closed-loop structure. Charts and diagrams placed before the Court only collated transactions already appearing in the order and did not add a new factual foundation. The delay and the operational character of the seized premises did not invalidate the threshold exercise of jurisdiction, though they remained relevant to continuation of seizure before the Competent Authority.
Conclusion: The recorded material supported the preliminary reason to believe under Section 37A(1), and the seizure was not vitiated by impermissible supplementation of reasons. This issue was decided against the assessee, subject to statutory confirmation proceedings.
Issue (v): Effect of regulatory and income-tax treatment of the transactions on the FEMA seizure.
Analysis: RBI and SEBI communications addressed identified features of the NCD transaction, while the income-tax proceedings concerned separate statutory questions. None of those proceedings determined whether the complete connected arrangement contravened Section 4 of FEMA. Their findings and regulatory treatment remain relevant material requiring fair consideration in the statutory proceedings.
Conclusion: The prior regulatory and tax treatment did not foreclose the FEMA inquiry or invalidate the seizure at the threshold. This issue was decided against the assessee.
Issue (vi): Validity of the NOC refusal under Rule 10 in the absence of disclosed reasons and a demonstrable nexus, including reliance on a subsequent seizure order.
Analysis: Rule 10 contemplates applications by persons under investigation; pendency of an investigation alone cannot justify refusal. Although the proposed overseas treasury activities were capable of having a rational connection with the investigation, the rejection communication disclosed no reason or nexus. Confidentiality concerns could justify withholding sensitive particulars but not an entirely unreasoned decision. A seizure order made after the NOC refusal could not retrospectively supply its missing reasons. Since a response had been issued within the prescribed period, no deemed NOC arose.
Conclusion: The NOC refusal was unsustainable and was set aside in favour of the petitioner. The application must receive fresh, reasoned consideration; no entitlement to the NOC was determined.
Final Conclusion: The seizure remains subject to consideration by the Competent Authority, with the petitioner permitted to continue ordinary business operations from the secured premises without creating third-party interests. The NOC application requires a fresh and time-bound decision based on disclosed substantive grounds, and the regulatory authority must consider extension of the period for the proposed investment in accordance with law.
Ratio Decidendi: Section 37A does not retrospectively govern completed pre-commencement transactions, but recorded post-commencement payments alleged to form part of the same arrangement may provide the statutory basis for preliminary seizure, subject to confirmation proceedings.
Prospective application of FEMA seizure powers permits scrutiny of post-commencement payments, while unreasoned NOC refusals require reconsideration.
Section 37A of FEMA operates prospectively: completed pre-commencement transactions cannot be seized under it, but post-commencement payments forming part of an alleged connected arrangement may support preliminary action. A closed-loop pattern of foreign borrowing, NCD subscription, onward fund transfers, acquisition, amalgamation and repayment can supply jurisdictional facts for examining a possible Section 4 contravention, notwithstanding formal regulatory compliance or separate tax treatment. Recorded reasons based on that pattern may sustain seizure pending statutory confirmation, without later material creating a new basis. Rule 10 requires a reasoned NOC refusal with a demonstrable nexus to the investigation; an unexplained refusal requires fresh consideration and cannot be retrospectively justified by a later seizure.
Maintainability of Writ jurisdiction despite alternate statutory remedy - Prospective operation of foreign-exchange seizure power - Seizure for suspected foreign-exchange contravention - Recorded reasons and reason to believe - No-objection certificate for overseas investment - Reasoned administrative decision-making Alternative remedy and writ jurisdiction - Jurisdictional challenge to seizure power - Maintainability of the writ petitions despite the statutory mechanism under the foreign-exchange law - HELD THAT: - Availability of an alternate remedy is a rule of discretion and not an absolute bar to writ jurisdiction. The challenge to the seizure order raised threshold questions concerning the statutory power to invoke the seizure provision and the legality of the decision-making process, distinct from the factual sufficiency of material establishing the alleged contravention. The challenge to the refusal of the no-objection certificate was also maintainable because it alleged failure of fair administrative decision-making and no appellate remedy was available. In Radha Krishan Industries [2021 (4) TMI 837 - SUPREME COURT] Hon’ble Supreme Court has considered the scope of this rule in paragraphs 27 and 28. In paragraph 27.3, the Hon’ble Supreme Court has recognised, among other circumstances, cases involving breach of natural justice and cases where the proceedings are wholly without jurisdiction as exceptions to the rule of alternate remedy.[Paras 13] Both writ petitions were held maintainable; however, the seizure petition was maintainable only to examine the statutory power and legality of the decision-making process, while merits requiring factual appraisal were left to the statutory authority. Prospective operation of foreign-exchange seizure power - Subsequent acts under a continuing arrangement - Applicability of the seizure provision to a funding arrangement initiated before its commencement but followed by subsequent payments - HELD THAT: - The seizure provision, being substantive, cannot retrospectively apply to transactions completed before it came into force merely because their consequences continued. However, actual payments made after its commencement are subsequent acts, not merely the subsistence of an earlier liability. Such later acts, when alleged to form part of the arrangement under investigation, may be considered for exercising the seizure power; whether they constitute a substantive contravention remains for statutory determination. [Paras 14] The challenge based solely on retrospective application failed, since the Enforcement Directorate relied upon actual subsequent payments made after the seizure provision had come into force. Jurisdictional foundation for seizure of equivalent assets - Substance of connected financial transactions - Suspected holding of foreign exchange outside India - Whether the connected foreign borrowings, rupee-denominated debentures, acquisition of the Indian operating company and later repayments furnished a jurisdictional foundation to examine a suspected contravention? - HELD THAT: - Connected transactions undertaken through related entities within a short period could not be artificially viewed as isolated borrowings, investments or share acquisitions. The immediate onward transfer of the debenture proceeds, the financial position of the acquiring entity, the creation of a substantial liability in India, the subsequent amalgamation and discharge of that liability from the Indian business resources supplied material to examine the arrangement as a whole. The rupee denomination of the debentures, the foreign portfolio investor status of the subscriber and formal regulatory features of individual steps were relevant but not conclusive at the threshold. The Court did not finally determine the alleged contravention. [Paras 15] The material disclosed sufficient jurisdictional facts to invoke the seizure process and examine the transactions under the foreign-exchange law, subject to final consideration by the Competent Authority. Recorded reasons and reason to believe - Supplementation of statutory orders - Continuation of seizure of business premises - Whether the seizure order could be sustained on its recorded reasons and whether delay or seizure of the head-office premises invalidated the action? - HELD THAT: - A statutory seizure order must stand on reasons recorded when power is exercised and cannot be supported by an entirely new foundation subsequently. The seizure order, however, already recorded the alleged circular movement of funds, return of funds to the original lender, the asserted absence of genuine capital infusion, the relationship between entities and the connected debenture transaction. Charts used in the proceedings merely depicted those recorded transactions and did not add a new allegation. The elapsed time did not, at the threshold, invalidate the action in view of the complexity and continuing payments, though delay, cooperation and absence of asset dissipation remained relevant to continuation of seizure. Seizure of the head-office premises secured the property but did not by itself prohibit lawful business operations therefrom. [Paras 16] The recorded material was sufficient for the Authorised Officer to form a preliminary reason to believe; confirmation and continuation of seizure were left to the Competent Authority. The petitioner may lawfully use the seized premises for business but may not create third-party rights or deal with the property inconsistently with the seizure. Regulatory approvals and independent foreign-exchange inquiry - Effect of tax proceedings in foreign-exchange action - Effect of regulatory communications, tax assessments and related judicial decisions upon the foreign-exchange seizure proceedings - HELD THAT: - The regulatory and tax history was relevant but did not foreclose examination under the foreign-exchange law. The communications of the regulatory authorities addressed particular requirements concerning the debenture instrument and did not establish that the entire connected movement of funds had been examined and approved. Likewise, the tax proceedings determined questions arising under the income-tax law concerning foreign entities and did not decide whether the overall arrangement involving the Indian company attracted the foreign-exchange prohibition. Those materials must nevertheless be fairly considered by the Competent Authority. [Paras 17] The earlier regulatory and tax proceedings did not invalidate the seizure action, but their effect and the petitioner's explanation must be considered in the statutory proceedings. No-objection certificate for overseas investment - Reasoned administrative decisions - Nexus between investigation and proposed investment - Validity of refusal of a no-objection certificate for investment in a wholly owned global treasury entity while an investigation was pending - HELD THAT: - Mere pendency of an investigation cannot automatically justify refusal, since the rule itself provides a mechanism for persons under investigation to seek a no-objection certificate. Refusal must rest on relevant, rational and disclosed reasons showing a nexus between the investigation and the proposed investment. Although the proposed investment in an entity intended to finance overseas group entities was not wholly unrelated to the subject of investigation, the rejection communication disclosed no reason or nexus. Reasons subsequently advanced, including a later seizure order, could not retrospectively validate the earlier rejection. A timely but unreasoned response did not, however, result in a deemed no-objection. [Paras 18, 19] The rejection was set aside and remitted for fresh, time-bound consideration through a reasoned decision communicating the substance of the grounds, subject to lawful protection of sensitive material; no direction was issued to grant the no-objection certificate or permit the investment before fresh consideration. Final Conclusion: The challenge to the seizure order was dismissed, subject to statutory consideration of confirmation and continuation of the seizure, while lawful use of the seized business premises was preserved. The unreasoned refusal of the no-objection certificate was set aside and remitted for fresh, reasoned consideration; no opinion was expressed on the merits of the investigation or entitlement to the proposed investment.