Securities and Exchange Board of India (SEBI) derives its powers to investigate from Section 11-C of the Securities and Exchange Board of India Act, 1992 (Act), which was introduced by an amendment effective from 29-10-2002. Under this provision, SEBI has wide powers to investigate any transactions in securities or violations of the Act and the rules and regulations framed thereunder. Pursuant to such investigation, SEBI can initiate proceedings against such persons or intermediaries. Considering the above, understanding the nature and scope of SEBI’s power to investigate is important not just for listed companies but also for intermediaries, persons transacting in securities and persons associated with the securities market. The present article is an attempt to analyse the width and certain related aspects of SEBI’s power to investigate.
Under Section 11-C of the Act, SEBI can order an investigation (i) into a transaction in securities if it has reasonable grounds to believe that the transaction is being dealt with in a manner detrimental to the investors or the securities market; or (ii) if it has reasonable grounds to believe that an intermediary or person associated with the securities market has violated any provisions of the SEBI Act or the rules or the regulations or directions issued thereunder.
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SEBI is not required to direct investigation against a particular or identified person. SEBI can investigate into a transaction[1] and during such investigation determine the persons/intermediaries against whom it wishes to commence proceedings. Further, SEBI can commence investigation if it believes that a transaction has been carried out or dealt with in a manner detrimental to investors or the securities market or if it believes that a statutory or regulatory provision under the SEBI Act has been violated by any person associated with the securities market. This demonstrates the wide ambit of SEBI’s powers to investigate.
SEBI has the power to issue a wide variety of directions as part of its power to investigate under Section 11-C of the SEBI Act. Under Section 11-C, SEBI can:
Further, under Section 11-C “any person” can be directed to investigate the affairs of the intermediary or persons associated with the securities market and to make a report of their investigation. Section 11-C does not prescribe the criteria or qualifications of such investigating authority. The usage of words “any person” in Section 11-C(1) signifies that SEBI is empowered to appoint any person, who it may deem fit, to conduct the investigation. Such person can also be an external agency. Importantly, even the Securities and Exchange Board of India (Delegation of Statutory and Financial Powers) Order, 2019(DOP Order) does not prescribe the rank of the individual to be appointed to conduct an investigation. The DOP Order however specifies that an order for investigation and appointment of the investigating authority under Section 11-C can be passed by an executive director of SEBI. Under Order 3(2) of the DOP, the said power may be exercised by any officer or authority, higher in grade or rank or position to the executive director.
Section 11-C(6) provides penal consequences for failure, without reasonable cause, or for refusal to comply with the directions of the investigating authority. The section provides that if any person fails to
(i) produce any book, register, other document and record; (ii) furnish any information sought; (iii) appear before the investigating authority; (iv) answer any question which is put to him; or (v) sign the notes of any examination, then such person shall be punishable with imprisonment for up to one year or with fine up to one crore rupees or with both. It is also provided that further fine of up to five lakh rupees can also be imposed for every day after the first day during which the failure or refusal continues.
Investigation is a fact finding and evidence collecting exercise. It typically consists of examination of persons, search and seizure of materials and documents for the purpose of determining whether the transaction in question or the persons being investigated have violated any provisions of the applicable law. As stated above, SEBI has been empowered by the Act to carry out investigations for the purpose of identifying any violations of the Act or of rules and regulations framed thereunder and for identifying any transactions in securities which have adverse effects on investors in the market. Section 11-C(1) provides that SEBI may, at any time by an order in writing, direct any person to investigate the affairs of an intermediary or persons associated with securities market and to report to SEBI thereon.
In DLF Ltd. v. SEBI[2], a learned Single Judge of the Delhi High Court considered Section 11-C of the Act and held that the powers conferred by the said section on SEBI are in the nature of “inquisitorial powers” and not “quasi-judicial powers”. The High Court further held that an investigating authority is extensively empowered to unearth facts and cause a detailed investigation into the matter; and once the investigation has been ordered under Section 11-C and an investigation report is made, SEBI, while examining said report and acting on it, functions in its quasi-judicial capacity. The relevant extract is as under:
Thus, while SEBI dons many hats, for example, that of a regulatory body framing rules and regulations, of a quasi-judicial body, etc., under Section 11-C, SEBI acts as an inquisitorial body engaged in the exercise of fact finding. This nature of power being exercised by SEBI under Section 11-C also has some bearing on the limitations imposed upon it by courts, as will be discussed below.
SEBI can commence investigation if it has “reasonable grounds” to do so. The existence of “reasonable grounds” is therefore a sine qua non for ordering an investigation under Section 11-C of the Act. The term “reasonable grounds” has not been defined in the Act.
While evaluating whether or not there exist any “reasonable grounds”, courts typically do not go into the sufficiency of the reasons. It is, however, open to courts to examine whether the reasons for SEBI’s belief have a rational connection or a relevant bearing to the formation of the belief and are not extraneous or irrelevant[4]. The expression “has reasonable ground to believe” would have to be understood to be the state of mind as regards the existence of something as likely or relatively certain and would have to be backed by some reasonable grounds. Reasonable grounds are understood to mean the information that establishes sufficient articulable fact that gives a reasonable basis to believe[5].
Research shows that courts are generally reluctant to interfere with orders of investigation[6]. Investigation by SEBI would typically lead to issuance of a show-cause notice to the person concerned. Although not in the context of a show-cause notice under the SEBI Act, the Supreme Court[7] in a writ petition seeking quashing of a show-cause notice issued under the provisions of the Foreign Exchange Management Act, 1999 stated that “This Court in a large number of cases has deprecated the practice of the High Courts entertaining writ petitions questioning legality of the show-cause notices stalling enquiries as proposed and retarding investigative process to find actual facts with the participation and in the presence of the parties….” A similar approach was adopted by the Supreme Court in Vishal Tiwari v. Union of India[8] dealing with the fall in share prices of the Adani Group of Companies pursuant to the report of Hindenburg Research. One of the reliefs sought was transfer of the investigation from SEBI to the Central Bureau of Investigation (CBI) or a special investigation team (SIT). The basis of seeking such transfer was that SEBI allegedly portrayed glaring, wilful and deliberate inaction in carrying out the investigation. The Court noted that while it has powers under Articles 32 and 142 of the Constitution to transfer the investigation, however, such power must be exercised sparingly and in extraordinary circumstances. While refusing to grant this relief, the Court noted that no apparent regulatory failure can be attributed to SEBI, nor is there any deliberate inaction or inadequacy which would warrant transfer of investigation from SEBI to CBI or a SIT.
Section 11-C of the Act does not envisage any opportunity of being heard before an investigation is ordered. This is confirmed by the Securities Appellate Tribunal (SAT) in Bhoruka Financial Services Ltd. v. SEBI[9]. The view taken by SAT has also been affirmed by the Delhi High Court in DLF Ltd. v. SEBI[10]. In the said case the Division Bench of the Delhi High Court also stated that “An investigation by itself does not adversely affect any person or intermediary and no civil consequences flow from such an order directing investigation.”
Thus, it can be concluded that the scope of judicial intervention based on alleged non-existence of “reasonable grounds” or otherwise, at the stage of investigation, is narrow. A party challenging investigation by SEBI would therefore have a high burden to discharge.
In Multibagger Securities Research & Advisory (P) Ltd. v. SEBI[11], the petitioners challenged Sections 11-C(3), (5), (6) and (7) of the SEBI Act. The petitioners’ contention was that these provisions inter alia curtailed their fundamental right of protection against self-incrimination and of life and liberty. It was also contended that Section 11-C(7) violates Article 20(3) of the Constitution of India. Section 11-C(7) inter alia provides that notes of any examination taken down in writing during examination of a person may be used in evidence against him after the same have been read over to and signed by the said person. Dismissing the petition, the Punjab and Haryana High Court held that:
It also held that:
While it appears that the Court has not directly addressed the issue, it appears that the Court has taken a view that the Act contains adequate safeguards provided in the enactment itself against any misuse of power.
The above analysis makes it clear that SEBI’s powers to investigate are vast. This appears to be intended to allow SEBI to thoroughly and freely investigate transactions affecting the interests of investors and securities market and possible violations of SEBI Act and the rules and regulations.
Footnote
[1] Rajan Vasudevbhai Dapki v. SEBI, 2006 SCC OnLine Guj 259; Sunita Agarwal v. SEBI, 2022 SCC OnLine Gau 2325.
[3] DLF Ltd. case, 2012 SCC OnLine Del 46.
[4] S. Narayanappa v. CIT, 1966 SCC OnLine SC 173; CIT v. M.R. Shah Logistics (P) Ltd., (2022) 14 SCC 101.
[5] Sunita Agarwal v. SEBI, 2022 SCC OnLine Gau 2325.
[6] Panther Fincap and Management Services Ltd. v. Union of India, 2005 SCC OnLine Bom 386.
[7] Special Director v. Mohd. Ghulam Ghouse, (2004) 3 SCC 440.
[10] 2012 SCC OnLine Del 5765.
[11] 2022 SCC OnLine P&H 4243.
[12] Multibagger case, 2022 SCC OnLine P&H 4243.
[13] Multibagger case, 2022 SCC OnLine P&H 4243.
This article was originally published in SCC Online on 22 July 2024 Co-written by: Vaibhav Singh, Partner; Radhika Indapurkar, Principal Associate; Manas Kotak, Associate. Click here for original article
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Contributed by: Vaibhav Singh, Partner; Radhika Indapurkar, Principal Associate; Manas Kotak, Associate
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