Layering Labyrinth of Overseas Investment and Companies Rules: An Interpretative Solution
[By Akshita Bhansali & Niharika Agarwal] The authors are students of Gujarat National Law University. Background In the backdrop of several tax evasion and money laundering cases, upon the recommendations of the Joint Parliamentary Committee on Stock Market Scam, the Ministry of Finance introduced the Companies (Restriction on Number of Layers) Rules, 2017 (“Layering Rules”) for more transparency. The Layering Rules restrict companies from having more than 2 layers of subsidiaries, counted vertically, subject to certain exemptions. However, linguistic ambiguities in the Layering Rules have created confusion among legal practitioners and academicians alike, which despite abundant pleas have not been clarified. To complicate matters further, in 2022 the Foreign Exchange Management (Overseas Investment) Rules, 2022 (“OI Rules”) along with Regulations and Directions issued by RBI, established a new framework for overseas investment including the setting up of subsidiaries or joint ventures abroad. These rules introduced a relaxation, permitting what was restricted in the earlier regime as ‘round tripping’ i.e., investment in a foreign entity that directly or indirectly invests in India. But this move comes with a restriction under Rule 19(3) of OI Rules, 2022 that such an investment in a foreign entity must not result in a structure of more than 2 layers of subsidiaries. In this provision, though the OI Rules reference the Layering Rules, it is replete with ambiguities as to how their differing provisions interplay in practical application for any business entity. This blog intends to identify these ambiguities through hypothetical scenarios of company structures and provide specific resolutions for the same through the aid of rules of statutory interpretation. Scenario 1: Exception to Foreign Subsidiaries The Layering and OI Rules adopt differing approaches when it comes to counting of foreign subsidiaries on account of their different regulatory purposes. The Layering Rules introduce a provision to the effect that the layering restrictions shall not affect the acquisition of foreign subsidiaries, thereby omitting them from the computation of layers. Such a concession is not granted by OI Rules which were formulated primarily to address intricacies in foreign investment structures and promote legitimate business activities by imposing restrictions on specific FDI – ODI arrangements. Therefore, omission of foreign subsidiaries would strike at the very heart of the OI Rules’ provisions. Keeping this dissimilarity in mind, consider the scenario of an Indian parent entity “A”. Its foreign subsidiary “B” would be excluded from computation by the Layering Rules, but in the realm of OI Rules would be considered as the parent (the reasoning for which is discussed in Scenario 2). Consequently, its Indian subsidiary “C” would form the first layer under both regulatory frameworks. However, complications arise with a subsequent foreign subsidiary “D” classifying as the second layer under OI Rules but accorded exemption under Layering Rules. Now, another Indian subsidiary “E” forming the second layer under Layering Rules yet is barred under OI Rules on account of the restriction of 2 layers. This presents an ambiguity wherein a structure explicitly permitted under Layering Rules on account of the exemption, becomes violative of OI Rules. Fig. 1: Ambiguity in treatment of Foreign Subsidiaries To navigate this quandary, the Doctrine of Lex Specialis, a principle of statutory interpretation favouring specialised laws over general ones, assumes relevance. Legal precedents like Ram Parshotam Mittal vs. Hotel Queen Road Pvt. Ltd. and Union Of India vs M/S.Kiran Overseas Ltd. establish the precedence of FEMA as a special law over the Companies Act and their respective rules. Applying the same in the current context, OI Rules prevails over the exemption granted by the Layering Rules. Consequently, subsidiary “E” would not be permitted, aligning with the more stringent constraints dictated by OI Rules. This approach ensures consistency in regulatory interpretation while maintaining the integrity of cross-border corporate structuring. Scenario 2: Determination of Parent Company Another key distinction is the determination of the entity being considered as the parent company from which the subsidiary layers are counted which also creates a dissonance in counting of layers for compliance, which can be properly addressed through the use of harmonious construction of their provisions for compliance of both laws simultaneously. While the Layering Rules intuitively considers the first Indian Company “A” as the parent company, the OI Rules seem to follow a different pattern. It is important to note that amongst academia there exists an equivocation on the question of determining the starting point for calculation of layers under the OI Rules. However, clause (15) of the ‘Instructions for filling up the Form FC’ in RBI’s Master Directions on Reporting under Foreign Exchange Management Act, 1999 clarifies that for the purpose of calculation, the foreign entity shall be treated as the parent, with a subsidiary directly under the foreign entity being treated as first layer and so on. This diverged position creates a problem in determination of allowance of subsidiaries. For instance, Indian company “A” has subsidiary “B” which has a subsidiary “C” forming layers 1 and 2 respectively in India. “C” sets up a foreign subsidiary “D” through ODI which would not be affected by Layering Rules but would form the parent company for the purposes of OI Rules. Now if “D” were to choose to set up an Indian subsidiary “E”, under OI Rules this would be permitted as the first layer but would clearly breach the limits of the Layering Rules by classifying as a third layer. Fig. 2: Determination of Parent Company and counting of layers thereof. In such a scenario it is important to keep in mind that when interpreting the different positions of the two laws, they cannot be interpreted so as to reduce the provision of any Statute or Rule as redundant. This can be ensured by adoption of the Doctrine of Harmonious Construction as laid down in Commissioner of Income Tax v. M/S Hindustan Bulk Carriers by giving an effective interpretation and upholding the regulatory objective of both law. The ambit and purpose of FEMA being limited to regulating foreign investment and the flow of currency across jurisdictions,