Holding

SEBI may direct only compensatory interest for delay in a public offer, the rate must be reasonable (10% p.a.), dividends must be set‑off against that interest, and only shareholders on the triggering date are entitled to the payment.

Summary

The Supreme Court considered a dispute arising from SEBI’s direction that the acquirer of Colour‑Chem Ltd. pay interest to shareholders for the delay in making a public offer under the 1997 Takeover Regulations, as amended in 2002. The Board had directed a 15% per‑annum interest on the offer price and held that dividends should not be set‑off, while the Securities Appellate Tribunal upheld the rate and the non‑set‑off rule. The appellants argued that the interest rate was excessive, that dividends should be deducted, and that only shareholders on the “triggering date” were entitled to interest. The Court examined the statutory framework, the nature of SEBI’s discretionary power under Regulation 44, the definition of “shareholder”, and principles of administrative law governing reasonableness and the award of interest. It held that the Board’s power is limited to compensatory interest, that the rate of 15% was unreasonable, that dividends must be set‑off against interest, and that interest should be fixed at 10% per annum from March 1998 to 2003. Accordingly, the Court allowed the appeals of the acquirer and the UTI administrator, dismissed the SEBI and other appeals, and ordered the deposit of interest to benefit the eligible shareholders.

Issues considered

The scope of SEBI’s power under Regulation 44( i) of the 2002 Substantial Acquisition of Shares and Takeovers Regulations to direct payment of interest.
Whether the interest payable is compensatory or penal and what rate is reasonable.
Whether dividends received by shareholders should be set‑off against the interest awarded.
Who qualifies as a ‘shareholder’ entitled to interest – only those on the triggering date or also subsequent holders.
The extent of the Securities Appellate Tribunal’s jurisdiction and the applicability of the doctrine of separation of powers.

Legislation cited

Code of Civil Procedure, 1908s. 34
Companies Act, 1956s. 41
Securities and Exchange Board of India Act, 1992s. 11, s. 118, s. 15Z, s. 2(2)
Securities and Exchange Board of India (Substantial Acquisition of Shares and Takeovers) Regulations, 1997s. 12, s. 14, s. 15, s. 16, s. 20, s. 21, s. 44
Securities Contracts (Regulation) Act, 1956

Subjects

SEBIRegulation 44interest on delayed public offershareholder definitiondiscretionary poweradministrative lawseparation of powersSecurities Appellate Tribunalrate of interestdividend set‑offtakeover regulationscompensatory interest

Judgment

CLARIANT INTERNATIONAL LTD. AND ANR. A
v.
SECURITIES AND EXCHANGE BOARD OF INDIA

AUGUST 25, 2004

(N. SANTOSH HEGDE, S.B. SINHA AND A.K. MATHUR, JJ.] B

Securities and Exchange Board of India Act, 1992:

Section 2(2)-"Shareholders "-Rights of-Held: Purely contractual
in nature. c
Section 1I-Interest of investors in security-Power ofBoard-Held:
Board has wide power to issue directions both in the interest of the
securities market as well as for protection of interest of investors-Such
power includes a direction to pay interest. D
Sections 11to11-D, 15-A to 15-JA, 15-T. 15-U, 15-V and 15-Z-
Securities Appellate Tribunal-Powers and function of-Jurisdiction-
Nature and scope of-Held: Not in any way fettered by the statute-The
Tribunal which is an expert body must, therefore, be allowed to exercise E
its own jurisdiction conferred on it by the statute without any limitation-
Had it been the intention of the Parliament to limit the jurisdiction of the
Tribunal it could have done so explicitly as has been done in terms of S.
15-Z in the case of Supreme Court.

Sections 11to11-D, 15-A to 15-J, 15-T, 15-U and 15-V-Security F
and Exchange Board-Powers and functions of-Doctrine of separation
of powers-Nature and scope of-Held: The Board exercises legislative,
executive and judicial powers-The only check on such wide-ranging
power is that the Board must comply with the Constitution and the Act-
Hence, where an expert body such as the Securities Appellate Tribunal is G
constituted, the scrutiny at its end must be held to be of wide import.

Securities and Exchange Board of India (Substantial Acquisition of
Shares and Takeovers) Regulations, 1997: Regulation 44(i) [as inserted
in 2002}. H
843
844 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A Public offer-Delay in making of-Expression "interest ofinvestors"-
Import of-Held: Such an expression did not occur in Regulation 44 as
it stood in 1997-Hence, its insertion in Regulation 44 in 2002 shows that
the Board has wide powers to issue directions including award of interest-
However, Regulation inserted in 2002 has curtailed the discretionary
B jurisdiction of the Board-The Board, in terms of the 1997 Regulations,
could award interest by way of damages-But by reason of the 2002
Regulations, its power is limited to grant of interest to compensate lhe
shareholders for the loss suffered by them arising out ofthe delay in making
the public offer-However, the shareholders have no say in the matter-
C As a necessary concomitant they have no legal right therein-The discretion
so exercised is subject to appeal as also judicial review and, thus, must
also answer the test of reasonableness-Further, payment of interest for
delay in making the public offer is not a commercial transaction-Interest
awarded reduced from 15% to 10%.

D "Interest of investors"-Directions issued to safeguard-Nature and
scope of Held: Regulation 44(i) inserted in 2002 not ofpenal consequence
but only a civil consequence-But a direction in terms of Regulation 44
of 1997, which was "in the interest of the securities market"; would
indisputably have caused civil consequences to the defaulters.
E
Interest-Award of-Principles-Held: In the absence of any
agreement or statutory provision or mercantile usage, interest payable can
be only at the market rate-Such interest is payable upon establishment
of the totality of circumstances justifYing exercise of such equitable
F jurisdiction-In such matters, courts oflaw can take judicial notice ofboth
inflation as also fall in bank rate of interest.

Compensation and interest-Held: Only those shareholders whose
shares have been accepted upon public announcement of offer and who
have suffered loss owing to blockage of amount by not being able to sell
G the shares held by them are entitled to compensation and interest-
Moreover, such shareholders must be those who were shareholders on the
triggering date i.e. the date of takeover/acquisition.

Interest awarded to shareholders-Dividend received by
H shareholders-Effect of-Held: The dividend received by shareholders
CLARIANT INTERNATI ONALL TD. v. SECURITIES k EXCHANGE BOARD OF INDIA 845
should be set-off against interest awarded. A
Administrative Law:

Delegated legislation-Duties ofauthority-Held: When any criterion
is fixed by a statute or by a policy, an attempt should be made by the B
authority making the delegated legislation to follow the policy formulation
broadly and substantially and act in conformity thereof

Interpretation of Statutes:

Legal fiction-Inevitable corollaries thereof-Held: Once a fiction is C
created, upon imagining a certain state of affairs, imagination cannot be
permitted to be boggled when it comes to the inevitable corollaries thereof

Words & Phrases:
D
"Interest of investors "-Meaning of-In the context of Regulation
44(i) ofthe Securities and Exchange Board ofIndia (Substantial Acquisition
of Shares and Takeovers) Regulations, 1997.

Doctrines: E
"Doctrine of restitution "-Invoking of-During pendency of
litigation-Held: Can be invoked-But the court should see that while
compensating a person he should not be urijustly enriched.

"Doctrine of separation of powers "-Discussed
F

Colour Chem. Ltd. was a target company. Its shares are listed on
the Bombay Stock Exchange and National Stock Exchange. An
agreement was entered into by and between one Hoechst and one
Clariant pursuant whereto and in furtherance whereof German G
Specialty Chemicals business of the target company was transferred
to the latter by transferring some equity shares of Rs. I 00 each of the
target company. On or about 21-11-1997, with a view to giving effect
to the said agreement, Clariant sought for an exemption from compliance
of the requirements of making open offer to the shareholders of the H
846 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A target company in terms of the provisions of the Securities and
Exchange Board of India (Substantial Acquisition of Shares and
Takeovers) Regulations, 1997. Such exemption, however, was not
granted. Hoechst in the aforementioned situation decided to sell-off the
shares held by it in the target company to Ebito, a company that was
B floated as a special purpose vehicle. After the transfer Ebito became
a 100% subsidiary company of Clariant.

A complaint was received by the Securities and Exchange Board
oflndia to the effect that as by reason of the aforementioned agreement
C as SO.I% shares/voting rights and control in the target company had
been made without any public announcement, the provisions of the
Regulations had been violated. Upon an inquiry made in this behalf,
the Board concluded that the .acquirer had actually acquired the
control over the target company on 21-11-1997. By reason of an order,
D the Board issued certain directions.

An appeal was preferred against the said order by the acquirer
wherein the primary question raised was the rate of interest for the
delay involved in making payment to the shareholders who tendered
the shares in the public offer required to be made in terms of the
E Regulations.

The submissions of the acquirer before the Securities Appellate
Tribunal were that (i) the rate of interest was on the higher side; (ii)
the dividends having been paid in the meantime, the same should be
F set-off from the amount of payable interest; and (iii) the interest was
payable only to those shareholders who held shares on the triggering
date.

The Tribunal by its impugned judgment while rejecting the first
G two contentions raised on behalf of the appellan<-acquirer accepted the
third and held that the interest shall be at the rate of 15% as directed
by the respondent and further held that the dividend paid by the target
company to its shareholders was not required to be deducted from the
interest payable to the shareholder by the appellant-acquirer. Hence
H the appeals.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA 84 7

Disposing of the appeals, the Court A
HELD: 1.1. 'Shareholder' has neither been defined in the Securities
and Exchange Board of India Act, 1992 nor in the Securities and
, Exchange Board of India (Substantial Acquisition of Shares and
Takeovers) Regulations, 1997; whereas 'shares' have been defined to B
mean shares in the share capital of a company carrying voting rights
and include any security which would entitle the holder to receive shares
with voting rights but shall not include preference shares. (863-C]

1.2. As 'shareholder' has not been defined, with a view to bringing
a 'shareholder' within the provisions of the said Regulations, one has to C
refer to the relevant provisions of the Companies Act, 1956. (863-F)

2.1. Section ll of the Act provides that it shall be the duty of the
Securities Exchange Board to protect the interest of investors in
securities. Regulation 44 of 1997, however, empowered the Board to D
issue directions only in the interest of the securities market. The
expression "in the interest of the investors" did not occur therein.
Regulation 44 of the 2002 Regulations, which contains the said expression,
thus, confers a wider power upon the Board. Regulation 44 of the 2002
Regulations, furthermore, empowers the Board to issue directions both
in the interest of the securities market as well as for the protection of the E
interest of investors. Such directions may be issued in its discretion. The
Board, however, in its discretion may or may not issue such directions.
The shareholders do not have any say in the matter. As a necessary
concomitant, they have no legal right. (864-B-D; 864-G-H)
F
2.2. A direction in terms of Regulation 44, which was in the
interest of securities market indisputably would have caused civil or
evil consequences on the defaulters. Regulation 44(i) of the 2002
Regulations, however, does not provide for any penal consequence. It
provides for only a civil consequence. [864-E]
G
3. The Board further having a discretionary jurisdiction must
exercise the same strictly in accordance with law and judiciously. Such
discretion must be a sound exercise in law. The discretionary jurisdiction,
it is well known, although may be of wide amplitude as the expression
"as it deems fit" has been used but in view of the fact that civil H
848 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A consequences would ensue by reason thereof, the same must be
exercised fairly and bona fide. The discretions so exercised is subject
to appeal as also judicial review, and thus, must also answer the test
of reasonableness. The discretionary jurisdiction has to be exercised
keeping in view the purpose for which it is conferred, the object sought
B to be achieved and the reasons for granting such a wide discretion. A
discretionary jurisdiction, furthermore, must be exercised within the
four corners of the statute. [865-A-B, D-F[

Narendra Singh v. Chhotey Singh, (1983] 4 SCC 131 and Dr.
C Akshaibar Lal v. The Vice-Chancellor, Banaras Hindu University, [1961]
3 SCR 386, relied on.

Kruger v. Commonwealth ofAustralia, [1997] 146 Aus LR 126 and
de Smith, Wolf and Jowell: Judicial Review of Administrative Action, 5th
Edn., p. 445, para 9-022, referred to.
D
4.1. Interest can be awarded in terms of an agreement or statutory
provisions. It can also be awarded by reason of usage or trade having
the force of law or on equitable considerations. Interest cannot be
awarded by way of damages except in cases where money due is
E wrongfully withheld and there are equitable grounds therefor, for
which a written demand is mandatory. (865-G[

4.2. In the absence of any agreement or statutory provision or a
mercantile usage, interest payable can be only at the market rate. Such
F interest is payable upon establishment of totality of circumstances
justifying exercise of such equitable jurisdiction. (866-A]

Municipal Corporation ofDelhi v. Sushi/a Devi (Smt.), [1994] 4 SCC
317, Executive Engineer, Dhenkanal Minor Irrigation Division, Orissa v.
NC. Budharaj, [2001] 2 SCC 721, relied on.
G
4.3. In a given case where the liability arises during the pendency
of a litigation, doctrine of restitution can be invoked. (866-D]

South Eastern Coalfields Ltd. v. State of MP., (2003] 8 SCC 648,
H relied on.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA 849

Black's Law Dictionary, 7th Edn., p. 1315 and John D. Calamari A
& Joseph M Perillo: Law of Contracts, referred to.

5. When a benchmark is fixed by a statute, the question as to
whether a discretion has been judicially or properly exercised or not
will have to be determined in the context of the facts of the particular B
case. So also, when a benchmark is fixed or the court grants interest
at the agreed rate, it may not be necessary to give rea8ons but where
interest is granted at a higher or lesser rate, some reasons are required
to be assigned. [867-A-BJ

Secretary, Irrigation Department v. G.C. Roy, [1992) I SCC 508, C
relied on.

6.1. By reason of Regulation 44, as substituted in 2002, the
discretionary jurisdiction of the Board is curtailed. It in terms of
Regulations 1997 could award interest by way of damages but by D
reason of Regulation 2002, its power is limited to grant interest to
compensate the share holders for the loss suffered by them arising out
of the delay in making the public offer. The courts of law can take
judicial notice of both inflation as also fall in bank rate of interest. The
bank rate of interest both for commercial purpose and other purposes E
had been the subject matter of statutory provisions as also the judge-
made laws. Even in cases of victims of motor vehicles accidents, the
courts have upon taking note of the fall in the rate of interest held that
9% interest to be reasonable. Furthermore while construing such
provisions, the courts must take into consideration the provisions of the F
law such as Section 34(1) and (2) of the Code of Civil Procedure, 1908
as had been interpreted by courts prior thereto. [867-B-EJ

Kaushnuma Begum (Smt.) v. New India Assurance Co. Ltd., [2001)
2 SCC 9, HS. Ahammed Hussain v. Ir/an Ahammed, [2002) 6 SCC 52
and United India Insurance Co. Ltd. v. Patricia Jean Mahajan, (2002) 6 G
sec 281, relied on.
6.2. The Statutory changes brought about must be noticed by the
court keeping in view the fact that the nature of jurisdiction exercised
by the Board has been changed. The mischief rule also in this case H
I\

850 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.
A should be applied. [867-E]

7. The payment of interest for delay in making the public offer
is not a commercial transaction. [868-C]

B Citibank NA. v. Standard Chartered Bank, [2004[ 1 SCC 12 and
Citibank NA. v. Standard Chartered Bank, [2004[ 6 SCC 1, relied on.

DDA v. Mis: Surgical Cooperative Industrial Estate Ltd., [1993]
Supp. 4 SCC 20, held inapplicable.

c DDA v. Joginder S. Monga, [2004[ 2 SCC 297; State Bank of Patiala
v. Harbans Singh, [1994[ 3 SCC 495 and Regional Provident Fund
Commissioner v. Shiv Kumar Jain, [2000[ 1 SCC 98, referred to.

Black's Law Dictionary, referred to.
D
8. While awarding interest, it is required to bear in mind that
interest would be payable on the maximum price of the share which
was Rs. 318 and not on Rs. 220 which was not the prevailing price
in 1998, as a result whereof not only a shareholder would be getting
E a higher price but would also be getting interest thereupon. [870-E[

9.1. To becom.: a shareholder, a person has to fulfil two conditions,
namely, he must agree in writing to become a member of a company
and whose name should be entered in its register of members. The
F members holding equity share capital of a company and whose names
are entered as beneficial owners in the records of the depository shall
be deemed to be the members of the concerned company. [871-F-G]

9.2. The rights of a shareholder are purely contractual and would
be such which are granted to him by the Company's Memorandum or
G Articles of Association together with the statutory rights conferred on
him by the Companies Act, 1956. [873-8[

Mis. Howrah Trading Co. Ltd. v. The Commissioner of Income Tax,
[1959[ Supp. 2 SCR 448 and Balkrishan Gupta v. Swadeshi Polytex Ltd.,
H !19851 2 sec 167, relied on.
l

CLARJANT INTERNATIONAL LTD. v. SECURJTIES & EXCHANGE BOARD OF INDIA 851

Palmer;s Company Law, 23rd Edn., p. 154, para 12-07, referred A
to.

9.3. A shareholder having regard to the direction issued by the
Tribunal must be one who was a shareholder on the triggering date
i.e. the takeover/acquisition of the target company. Purpose and object
of creating a legal fiction is well known. Once a fiction is created upon B
imagining a certain state ofaffairs, the imagination cannot be permitted
to be boggled when it comes to the inevitable corollaries thereof.
[873-C-D)

Dipak Chandra Ruhidas v. Chandan Kumar Sarkar, [2003) 7 SCC C
66; ITW Signode India Ltd. v. CCE, (2004] 3 SCC 48 and Ashok Leyland
Ltd. v. State of Tamil Nadu, (2004] 3 SCC l, relied on.

IO. Directions by the Board are required to be issued for the
purpose of protecting the interest of the investors which would imply
that such protection be extended to the persons who are entitled D
thereto and not any other shareholder who would get the same by
windfall. The shareholders contemplated under Regulation 44(i) must
be those shareholders whose shares have been accepted upon public
announcement of offer and who have suffered a loss owing to blockage
of amount by not being able to sell the shares held by them. The object E
of the said provision is to protect the interest of such shareholders who
had suffered a loss for delay in making the public announcement and,
thus, may have to be compensated. The very fact that the benchmark
as regards the rate of interest has been fixed is also a pointer to the
fact that the interest is to be paid to such investors who had suffered
some loss. (873-D-F] F
II.I. While compensating a person, the court should see that he
is not unjustly enriched. Interest is directed to be paid on the default
of the acquirer occasioning loss suffered by an investor of his money.
Interest was, therefore, payable only to such persons who were G
shareholders of the target company as on the triggering date. The
question of paying interest by way of compensation to persons who had
not suffered any loss, thus;·would not arise. (873-G; 874-A; 873-H]

12. When any criterion is fixed by a statue or by a policy, an
attempt should be made by the authority making the delegated H
852 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A legislation to follow the policy formulation broadly and substantially
and in conformity thereof. [876-D]

Secretary, Ministry of Chemicals & Fertilizers, Government of India
v. Cipla Ltd., [2003] 7 SCC I, relied on.

B 13.1. Executive functions of the State calls for exercise of discretion.
The executive also, thus, performs quasi judicial and quasi-legislative
functions and, in this view of the matter, the administrative adjudication
has become an indispensable part of the modern State activity.
[876-F-G]
c 13.2. Administrative Tribunals may be called specialized courts
of law, although it does not fulfill the criteria of a law court as is
ordinarily understood inasmuch as it cannot, like an ordinary court of
law, entertain suits on various matters, including the matter relating
to the vires of a legislation. [876-G-H; 877-A]
D
0. Hood Phillips: Constitutional and Administrative Law, 8th Edn.,
p. 692 under the Chapter Tribunals", para 30-021; Robert Carnwath:
Environment Enforcement: The Need for a Specialist Court published in
1992 Journal of Planning and Environment Law, p. 799, Barbara
E Mescher: Powers of the Takeovers Panel and their Effect upon ASIC and
the Court; 2002 (76) Australian Law Journal, p. 119, referred to.

14.1. Had the intention of the Parliament been to limit the
jurisdiction of the Securities Appellate Tribunal, it could have said so
explicitly as has been done in terms of Section 15-Z of the Act whereby
F the jurisdiction of this Court to hear the appeal is limited to the
question of law. [880-A-B)

14.2. The jurisdiction of the appellate authority under the Act is
not in any way fettered by the statute and, thus, it exercises all the
G jurisdiction as that of the Board. It can exercise its discretionary
jurisdiction in the same manner as the Board. [880-B-C)

14.3. Our Constitution although does not incorporate the
doctrine of separation of powers in its full rigour but it does make a
horizontal division of powers between the Legislature, Executive and
H Judiciary. [880-E)
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA 853

Rai Sahib Ram Jawaya Kapur v. State of Punjab, AIR (1955) SC A
549, relied on.

15. The Board exercises its legislative power by making regulations,
executive power by administering the regulations framed by it and
taking action against any entity violating these regulations and judicial B
power by adjudicating disputes in the implementation thereof. The
only check upon exercise of such wide-ranging power is that it must
comply with the Constitution and the Act. In that view of the matter,
where an expert tribunal has been constituted, the scrutiny of its end
must be held to be of wide import. The Tribunal, another expert body,
must, thus, be allowed to exercise its own jurisdiction conferred on it C
by the statute without any limitation, (880-F, HJ

Cellular Operators Association of India v. Union of India, (2003) 3
SCC 186 and West Bengal Electricity Regulatory Commission v. CESC
Ltd., (2002) 8 sec 715, relied on. D
H WR. Wade and C.F. Forsyth: Judicial Review of Administrative
Law, Bernard Schwartz: Administrative Law, 3rd Edn., p. 625 para 10.l
and Amnon Rubin Stein: Jurisdiction and Illegality, referred to.

16. The Tribunal has committed an error in holding that the E
dividend being a participatory benefit available to a shareholder and
being distinct from interest, the same should not be taken into
consideration. The Regulation fixes a benchmark as regards rate of
interest. If any amount has been received by the shareholders by
keeping the shares till a public offer was made, the amounts so received p
by them by way of dividend should set-off. (883-D-EJ

17. The interest of justice would be sub-served, if the rate of
interest is directed to be paid @ 10% per annum from March 1998
till 2003. The interest at the rate of 10% is directed instead and in place
of the normal, 9% having regard to the fact that the appellants G
themselves in their Memoran·dum of Appeal filed before the Tribunal
had contended that the Board should have granted interest at the rate
of 10% per annum instead of 15%. If any dividend was paid during
the said period, the same shall be adjusted with the amount of interest.
[883-G; 884-A-BJ H
854 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A 18. The appellants had deposited a total amount of Rs. 111.50
crores which sum has been invested. The interest accruing thereupon
shall enure to the benefit of those shareholders who were entitled to
the payment of interest for the period during which the said amount
remained invested. (884-B-C]

B 19. That part of the decision of the Tribunal whereby it was held
that those persons who were the shareholders till the triggering date
continued to be shareholders on the closure of the public offer alone
would be entitled to interest is, therefore, upheld. (884-C-D-El

c Undertaking
20. However, the case of the Administrator of the Specified
of the Unit Trust of India, stands on a different footing.
The facts of the matter clearly go to show that in effect and substance,
the appellants are the successors of the U. T.I. They being the statutory
beneficiary, are entitled to interest irrespective of the fact it came into
being after 1998. (884-D-El
D
CIVIL APPELLATE JURISIDICTION: Civil Appeal No. 3183 of
2003.

From the Judgment and Order dated 21.2.2003 of the Securities
Appellate Tribunal, Mumbai in Appeal No. 114 of 2002.
E
WITH

Civil Appeal Nos. 3701, 3872 of 2003 and D3952 of 2004.

R.F. Nariman, Dushyant Dave, Kirit N.Rawal, Manu Krishnan, Rishi
F Agrawal, E.C. Agarwala, Mahesh Agarwal, Ms. Pumima Bhat, Shrish K.
Misra, Praveen K. Mehdiratta, Bhargava V. Desai, Pradeep Mathur,
Sanjeev Kr. Singh, Dr. Indra Pratap Singh, Ms. Rachna Gupta, Jeevan
Prakash and K.K. Rai, for the appearing parties.

The Judgment of the Court was delivered by
G
S.B. SINHA, J.: These appeals under Section 15Z of the Securities
and Exchange Board of India Act, 1992 (for short, 'the said Act) arise out
of a judgment and order dated 21.02.2003 passed by the Securities
Appellate Tribunal, Mumbai (for short, 'the Tribunal') in Appeal No.114
H of 2002.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 855

BACKGROUND FACTS : A

Colour Chem Ltd, is a target company. Its shares are listed on the
Bombay Stock Exchange and National Stock Exchange, Appellant No.I
(Clariant) in Civil Appeal No.3183 of 2003 is a Swiss company being
subsidiary of another Swiss company, Clariant AG. Hoechst is a German B
company whereas Ebito Chemiebeteiligungen AG (Ebito) is a Swiss
company, In Ebito Clariant held 49% and Hoechest 51% shares. An
agreement was entered into by and between Hoechst and Clariant pursuant
whereto and in furtherance whereof German Specialty Chemicals business
was transferred to the latter by transferring 583708 equity shares of Rs. C
100 each of the target company. On or about 21.11.1997, with a view to
give effect to the said agreement, Clariant sought for an exemption from
compliance of the requirements of making open offer to the shareholders
of the target company in terms of the provisions of the Securities and
Exchange Board oflndia (Substantial Acquisition of Shares and Takeovers)
Regulations, 1997 (for sho1t, the Regulations). Such exemption, however, D
was not granted. Hoechst in the aforementioned situation decided to sell
off the shares held by it in the target company to Ebito, a company which
was floated on 19.5.2000 as a special purpose vehicle. Actual transfer took
place on 13.10.2000. Ebito by reason of the aforementioned transfer
became a 100% subsidiary of Clariant. E
A complaint was received by the Securities and Exchange Board of
India (for short, 'the Board') to the effect that as by reason of the
aforementioned arrangement as 50. l % shares/voting rights and control in
the target company had been made without any public announcement, the F
provisions of the Regulations had been violated. Upon an inquiry made in
this behalf, the Board came to the conclusion that the acquirer had actually
acquired the control over the target company on 21.11.1997, By reason
of an order dated 16.10.2002, the Board directed :

"13.1 In view of the findings made above, in exercise of the G
powers conferred upon me under sub-section (3) of Section 4 read
with Section 11 B SEBI Act 1992 read with regulations 44 and 45
of the said Regulations, I hereby direct the Acquirer to make
public announcement as required under Chapter JJI of the said
Regulations in terms of regulations 10 & 12 taking 21.11.97 as H
856 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A the reference date for calculation of offer price. The public
announcement shall be made within 45 days of passing of this
order.

13.2 Further, in terms of sub regulation (12) ofregulat.ion 22, the
B payment of consideration to the shareholders of the Target
company has to be made within 30 days of the closure of the offer.
The maximum time period provided in the said Regulations for
completing the offer formalities in respect of an open offer, is 120
days from the date of public announcement. The public
announcement in the instant case ought to have been made taking
c 21.11.97 as a reference date and thus the entire offer process
would have been completed latest by 21.3.98. Since no public
announcement for acquisition of shares of the Target company has
been made, which has adversely affected interest of shareholders
of Target Company, it would be just and equitable to direct the
D Acquirer to pay interest @15% per annum on the offer price, the
Acquirer is hereby accordingly directed to pay interest @15% per
annum to the shareholders for ,he loss of interest caused to the
shareholders from 22.3.98 till the date of actual payment of
consideration for the shares to be tendered in the offer directed
E to be made by the Acquirer."

An appeal was preferred thereagainst by the acquirer wherein the
primal question raised was the rate of interest for the delay involved in
making payment to the shareholders who tendered the shares in the public
F offer required to be made in terms of the Regulations.

It is not in dispute that the value of the share as on 24.2.1998 was
Rs. 220; on 22.10.2002 Rs .. 2 ! 3 and on the date of public announcement
i.e. on 7.4.2003 the value of the share was Rs. 209, Rs. 233 Rs. 203 and
Rs. 220, whereas the offer price was Rs. 318 .
G
The submissions of the acquirer before the Tribunal were that (i) the
rate of interest is on the higher side; (ii) the dividends having been paid
in the meantime, the same should be set off from the amount of payable
interest; and (iii) the interest is payable only to those shareholders who held
H shares on the triggering date, namely, 24.2.1998.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 857

IMPUGNED JUDGMENT : A
The Tribunal by its impugned judgment while rejecting the first
two contentions raised on behalf of the acquirer accepted the third,
holding :
B
"(i) Those persons who were holding shares of the target company
on 24.2.1998 and continue to be shareholders on the closure day
of public offer to be made in terms of the directions given by the
Respondent vide the impugned order alone shall be eligible to
receive interest in case the shares which they were holding on
24.2.1998 are tendered in response to public offer made in terms C
of the impugned order, and accepted by the Appellants.

(ii) The interest payable by the Appellants shall be at the rate of
15% as directed by the Respondent in its order dated 16.l 0.2002.
D
(iii) The dividend paid by the target company to its shareholders
not required to be deducted from the interest payable to the
shareholders by the Appellants."

The acquirer has preferred Civil Appeal No.3183 of 2003, whereas E
the Board has filed Civil Appeal No.3701 of 2003 against the said
judgment. Civil Appeal Nos. 03952 of2004 and 3872 of2003 have been
filed by the Administrator of the Specified Undertaking of the Unit Trust
of India and by one Umeshkuamr G. Mehta respectively.

Submissions :
F

Mr. R.F. Nariman, and Mr. D.A. Dave, learned Senior Counsel
appearing on behalf of the appellants, would submit that the intent and
purport of Regulation 44 of the Regulations, being to compensate the
shareholders for the loss suffered by them, the rate of interest payable to G
the shareholders would vary from case to case. The guidelines in this
regard having been provided for in the statute, Mr. Nariman would submit,
grant of 9% interest should be held to be just and proper in view the fact
that the investment was to be made for a long period, i.e., for about five
years. In support of the said contention, the learned counsel placed reliance H
858 SUPREME COURT REPORTS (2004) SUPP. 3 S.C.R.

A on Kaushnuma Begum (Smt.) and Others v. New India Assurance Co. Ltd.
and Others, [2001) 2 SCC 9, HS. Ahammed Hussain and Another v.
Irfan Ahammed and Another, [2002] 6 SCC 52, United India Insurance
Co. Ltd. and Others v. Patricia Jean Mahajan and Others, (2002]
6 SCC 281 and DDA and Others v. Joginder S. Monga and Others, [2004]
B 2 sec 297.

It was further submitted that those shareholders who had purchased
the shares later than the date fixed by the SEBI were not entitled to receive
any compensation by way of interest as they were not the shareholders on
C the said date having regard to the fact that their names did not appear in
the register of the company. As regard the findings of the Board that the
amount of dividend paid to the shareholders would not be set off against
the amount of interest, it was argued that having regard to the fact that
actual date of transfer had been fixed on 22.3.1998, by reason ofa fiction
D created, a person must be deemed to be a shareholder as on that date and
having regard to the fact that interest was being paid to the shareholders
at the offer price from the said date till the actual payment is made, the
amount received by the shareholders by way of dividend is liable to be
adjusted from the amount to be paid by way of interest. Our attention has
E further been drawn to the fact that pursuant to the order of this Court dated
28.4.2003 a sum of Rs. 111.50 crores had been deposited and invested in
a nationalized bank.

Mr. Kirit Rawal, learned Senior Counsel appearing on behalf of the
Board, would, on the other hand, contend that while fixing the rate of
F interest, the Board, being an expert body, exercises a discretionary
jurisdiction and, thus, the Tribunal and this Court should not interfere
therewith. The learned counsel would argue that the rate of interest fixed
at 15% p.a. cannot be said to be arbitrary and in support thereof
reliance has been placed on Delhi Development Authority v. Mis Surgical
G Cooperative Industrial Estate Ltd. and Others, [1993] Supp. 4 sec 20.
Mr. Rawal would contend that from a bare perusal of Regulation 44(i) of
the Regulations, it would appear that all those shareholders who had
opted to sell their shares pursuant to the public offer are entitled to the
payment of interest and, thus, the finding of the Tribunal in this regard is
H bad in law.
CLARIANT INTERNATIONAL LTD. v. SECURITIES &·EXCHANGE BOARD OF INDIA [SINHA, J.] 859

It was submitted that Regulation 44 must be read with Section I IB A
of the Act so as to put a proper and effective meaning thereto in terms
whereof the Board is entitled to issue any direction including those which
are specified therein ..

{'s regard the direction issued by the Tribunal to the effect that only B
those shareholders who were on the roll of the company and continued to
be so on the date of public offer alone are entitled to interest, Mr. Rawal
would contend that by reason of such construction of Regulation 44, the
free transferability of the shares which is the basic feature of the security
market would be interfered with.
c
Mr K.K. Rai, learned counsel appearing on behalf of the Appellant
m Civil Appeal No. 3872 of 2003, would, inter alia, contend that
transaction being commercial in nature, interest at the rate of 15% cannot
be said to be on a high side. Reliance in support of the said contention
has been placed on State Bank of Patia/a and Another v. Harbans Singh, D
[1994] 3 SCC 495 and Regional Provident Fund Commissioner v. Shiv
Kumar Joshi, [2000] I SCC 98.

It was contended that as shares were traded on speculation, it may
not be possible to identify the shareholders who as per direction of the E
Tribunal would be entitled to interest as the shares by such time might have
changed many hands. Furthe1more, the process being a complex one,
Regulation 44 should be read in such a manner which may be effectually
worked out.

Mr. Shrish Kr. Misra, learned counsel appearing on behalf of F
the Administrator of the Specified Undertaking of the Unit Trust of
India in Civil Appeal No. D3952 of 2004 would submit that the appellants
therein should be held to be entitled to grant of interest despite the fact
that it was not a shareholder as on 11.3.1998 as would appear from the
following: G

A. That the Unit Trust of India was a statutory corporation
under the Unit Trust oflndiaAct, 1963 and was/ is the shareholders
of the Target company and as on 24-2-1998 holding 1123800
shares. H
860 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A B. That Unit Trust of India Act, 1963 has been repealed by the
Act of the Parliament i.e. Unit Trust of India (Transfer of
Undertaking and Repeal) Act, 2002.

C. That the said Act provides for transfer and vesting ofUndertaking
(excluding Specified Undertaking) of Unit Trust of India to a
B
Specified Company (being UTI Trustee Company Pvt. Ltd.) to be
formed and registered under the Companies Act 1956 as well as
for transfer and vesting of Specified Undertaking of Unit Trust of
India in the Administrator appointed by the Central Government
in the terms of section 7 of Unit Trust of India (Transfer of
c Undertaking and Repeal) Act, 2002.

D. That as per section 4(1) (b) of the said Act the Specified
undertaking of the erstwhile Unit Trust oflndia being all business,
assets, liabilities and properties set out in Schedule-I of the said
D Act stood transferred to the vested in the "Administrator of the
Specified Undertaking of the Unit Trust of India" on and with
effect from the appointed day viz. 1-2-2003. That by virtue of
section 4(l)(a) of the said Act, the Undertaking (excluding the
Specified Undertaking) of the erstwhile Unit Trust of India
E being all business, assets, liabilities and properties set out in
schedule II of the said Act stood transferred to and vested in the
"UTI Trustee Company Pvt. Ltd" on and with effect from the
appointed day viz. 1-2-2003.

E. That the 1123800 shares (considering face value of Rs. 10
F each) purchased by the erstwhile Unit Trust of India were/are
from the amount which relates to Schedule I & II to the said Act.
Therefore, the shares purchased by the erstwhile Unit Trust of
India of Mis. Colour Chem Ltd. stands transferred to and vested
in the 'Administrator of the Specified Undertakings of the Unit
G Trust of India' and the 'Specified Company' i.e. UT! Trustee
Company Pvt. Ltd. by virtue of the said Act.

F. That out of 1123800 shares the amount invested for 501100
(considering face value ofRs.10 each as on 24-2-1998) shares is
H from the schemes which come under schedule I of the said Act,
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 861

as such the "Administrator of the Specified Undertaking of the A
Unit Trust of India" is the successor in holder of 501100 shares.

G. That the amount invested by the erstwhile Unit Trust of India
for the balance 622700 (considering face value of Rs. 10 each as
on 24-2-1998) shares was from the schemes which come under B
the Schedule II of the said Act, as such the "UT! Trustee Company
Pvt. Ltd." is the successor in holder of those 622700 shares.

H. That as per Section 5(1) of the said Act all the assets and
liabilities including lands, buildings, vehicles, cash balances, C
deposits, foreign currencies, disclosed and undisclosed reserves,
reserves fund, special reserve fund, benevolent reserve fund, any
other fund stock, investments, shares, bonds, debentures, security,
powers authorities privileges benefits of the erstwhile Unit Trust
oflndia vest in "Administrator of the Specified undertaking of the
Unit Trust of India" and "UT! Trustee Company Pvt. Ltd." D

I. That as per section 5(2) of the said Act "All contracts, deeds
bonds guarantees, power of attorney other instruments (including
all units issued and unit schemes formulated by the Trust and
working arrangements) subsisting immediately before the appointed E
day and affecting the Trust shall cease to have effect or to be
enforceable against the Trust and shall be in full force and effect
against or in favour of the specified company (UT! Trustee
Company Pvt. Ltd.) or the Administrator (Administrator of the
Specified Undertaking of the Unit Trust of India) as the case may F
be, in which the undertaking or specified undertaking has vested
by virtue of the said Act and enforceable as fully and effectually
as if instead of the Unit Trust oflndia, tli_e specified company (UT!
Trustee Company Pvt. Ltd) or the Administrator (Administrator
of the Specified undertaking of the Unit Trust of India) had been
named therein or had been a party thereto. G

The Relevant Statutory Provisions:

The Securities and Exchange Board of India Act, 1992 was enacted
to provide for the establishment of a Board to protect the interests of H
862 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A investors in securities and to promote the development of, and to regulate,
the securities market and for matter connected therewith or incidental
thereto. Section 11 of the Act provides that inter alia the duty of the Board
is to protect the interest of investors in securities and to promote the
development of, and to regulate the securities market, by such measures
B as it thinks fit, which would include in regulation of substantial acquisition
of shares an.d take-over of companies. Section 118 empowers the Board
to issue directions, inter alia, in the interest of investors, or orderly
development of securities market. Regulation 44 of the 1997 Regulations
reads thus :

C "44. Directions by the Board. The Board may, in the interests of
the securities market, without prejudice to its right to initiate
action including criminal prosecution under section 24 of the Act
give such directions as it deems fit including :

D (a) directing the person concerned not to further deal in securities;

(b) prohibiting the person concerned from disposing of any of the
securities acquired in violation of these Regulations;

(c) directing the person concerned to sell the shares acquired in
E violation of the provisions of these Regulations;

(d) taking action against the person concerned".

In terms of the said regulation, there was no express power to issue
any direction as regard grant of interest.
F
Regulation 44 of 1997 Regulations was substituted in the year 2002
with effect from 9.9.2002, the relevan~ portion of which reads thus :

"44. Directions by the Board. Without prejudice to its right to
initiate action under Chapter VIA and section 24 of the Act, the
G Board may, in the interest of securities market er for protection
of interest of investors, issue such directions as it deems fit
including: -

(i) directing the person concerned, who has failed to
H make a public offer or delayed the making of a public
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 863

offer in terms of these Regulations, to pay to the A
shareholders, whose shares have been accepted in the
public offer made after the delay, the consideration
amount along with interest at the rate not less than the
applicable rate of interest payable by banks on fixed
deposits." B
As the impugned order of the Tribunal had been passed on 21.2.2003,
it is not disputed that Regulation 44 as amended in 2002 shall be attracted
in the instant case.

'Shareholder' has neither been defined in the Act nor in the Regulations;
c
whereas 'shares' has been defined to mean shares in the share capital of
a company carrying voting rights and includes any security which would
entitle the holder to receive shares with voting rights but shall not include
preference shares ..
D
In terms of sub-section (2) of Section 2 of the said Act, the words
and expressions used and not defined in the Act but defined in the
Securities Contracts (Regulation) Act, 1956 (42of1956) or the Depositors
Act, 1996 (22 of 1996) shall have the meanings respectively assigned to E
them in that Act.

Clause (2) of Regulation 2 provides that all other expressions unless
defined therein shall have the same meaning as have been assigned to them
under the Act or the Securities Contracts (Regulation) Act, 1956 , or the
Companies Act, 1956, or any statutory modification or re-enactment F
thereto, as the case may be. As 'shareholder' has not been defined, with
a view to bring a 'shareholder' within the provisions of the said Regulations,
we have no option but to refer to the relevant provisions of the Companies
Act, 1956. Section 41 of the Companies Act defines 'member', sub-
sections (!) and (2) whereof are as under :- G

"41. (1) The subscribers of the memorandum ofa company shall
be deemed to have agreed to become members of the company,
and on its registration, shall be entered as members in its register
of members. H
864 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A (2) Every other person who agrees in writing to become a member
of a company and whose name is entered in its register of
members, shall be a member of the company."

Rate of interest :
B
Section 11 of the Act provides that it shall be the duty of the Board
to protect the interest of investors in securities. Regulation 44 of 1997,
however, empowered the Board to issue directions only in the interest of
the securities market. The expression "in the interest of the investors" did
C not occur therein. Regulation 44 of2002 Regulations, thus, confers a wider
power upon the Board. The said power is without prejudice to its right
to initiate action under Chapter VIA and Section 24 of the Act which deals
with offences . Regulation 44 of2002 Regulations, furthermore, empowers
the Board to issue directions both in tile interest of the securities market
D as well as for protection of interest of investors. Such directions may be
issued in its discretion. It, however, in its discretion may or may not issue
such directions. Regulation 44(i) of Regulations, therefore, confers a power
upon the Board to issue directions also in the interest of the investors which
would include a direction to pay interest.

E A direction in terms of Regulation 44 which was in the interest of
securities market indisputably would have caused civil or evil consequences
on the defaulters. Clause (i) of Regulation 44, however, does not provide
for any penal consequence. It provides for only a civil consequence. By
reason of the said provision, the power of the Board to issue directions is
F sought to be restricted to pay the amount consideration together with
interest at the rate not less than the interest payable by banks on fixed
deposits. Both the Board and the Tribunal have proceeded on the basis that
the interest is to be paid with a view to recompense the shareholders and
not by way of penalty or damages. Such a direction, therefore, was for the
G purpose of protecting the interest of investors and not "in the interest of
the securities market". The transactions in the n1arket are not thereby
affected one way or the other. The Board, as noticed hereinbefore, has a
discretion in the matter and, thus, it may or may not issue such a direction.
The shareholders do not have any say in the matter. As a necessary
H concomitant, they have no legal right.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA,!.] 865

The Board further having a discretionary jurisdiction must exercise A
the same strictly in accordance with law and judiciously. Such discretion
must be a sound exercise in law. The discretionary jurisdiction, it is well-
known, although may be of wide amplitude as the expression "as it deems
fit" has been used but in view of the fact that civil consequence would
ensue by reason thereof, the same must be exercised fairly and bona fide. B
The discretion so exercised is subject to appeal as also judicial review, and,
thus, must also answer the test of reasonableness.

In Kruger and Others v. Commonwealth of Australia, reported m
(1997) 146 Australian Law Reports, page 126, it is stated : C

"Moreover, when a discretionary power is statutorily conferred on
a repository, the power must be exercised reasonably, for
the legislature is taken to intend that the discretion be so
exercised. Reasonableness can be determined only by D
reference to the community standards at the time of the exercise
of the discretion and that must be taken to be the legislative
intention ..."

The discretionary jurisdiction has to be exercised keeping in view the
purpose for which it is conferred, the object sought to be achieved and the E
reasons for granting such wide discretion. [See Narendra Singh v. Chhotey
Singh and Another, [1983] 4 SCC 131.J

A discretionary jurisdiction, furthermore, must be exercised within
the four-corners of the statute. [See Dr. Akshaibar Lal and Others v. The F
Vice-Chancellor, Banaras Hindu University and Others, (1961] 3 SCR 386
and also para 9-022 of De' Smith, Woolf and Jowell's Judicial Review of
Administrative Action, 5th Edition, page 445]

Interest can be awarded in terms of an agreement or statutory G
provisions. It can also be awarded by reason of usage or trade having the
force of law or on equitable considerations. Interest cannot be awarded by
way of damages except in cases where money due is wrongfully withheld
and there are equitable grounds therefor, for which a written demand is
mandatory. H
866 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A In absence of any agreement or statutory provision or a mercantile
usage, interest payable can be only at the market rate. Such interest is
payable upon establishment of totality of circumstances justifying exercise
of such equitable jurisdiction. [See Municipal Corporation of Delhi v.
Sushi/a Devi (Smt.) and Others, [1999] 4 SCC 317 Para 16].

B In Executive Engineer, Dhenkanal, Minor Irrigation Division, Orissa
and Others v. N. C. Budharaj (Deceased) by Lrs. And Cthers, [200 l] 2 SCC
721, Raju, J. speaking for the majority held that a person deprived of the
use of money to which he is legitimately entitled has a right to be
compensated for the deprivation by whatever name it may be called,
C namely, interest, compensation or damages.

In Black's Law Dictionary, the word 'compensation' has been defined
as under :

"money given to compensate loss or injury".
D In a given case where the liability arises during pendency of a
litigation, doctrine ofrestitution can be invoked. In South Eastern Coalfields
Ltd. v. State of MP. and Others, [2003] 8 SCC 648], it was observed :

"In law, the term "restitution" is used in three senses (i) return or
restoration of some specific thing to its rightful owner or status;
E (ii) compensation for benefits derived from a wrong done to
another; and (iii) compensation or reparation for the loss caused
to another (See Black's Law Dictionary, 7th Edn., p. 1315). The
Law of Contracts by John D. Calamari & Joseph M. Perillo has
been quoted by Black to say that "restitution" is an ambiguous
F term, sometimes referring to the di~gorging of something which
has been taken and at times referring to compensation for injury
done:

"Often, the result under either meaning of the term would be
the same .... Unjust impoverishment as well as unjust enrichment
G is a ground for restitution. If the defendant is guilty of a non-
tortious misrepresentation, the measure of recovery is not rigid
but, as in other cases of restitution, such factors as relative fault,
the agreed-upon risks, and the fairness of alternative risk allocations
not agreed upon and ·not attributable to the fault of either party
H need to be weighed."
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 867

When a bench-mark is fixed by a statute, the question as to whether A
a discretion has been judicially or properly exercised or not will have to
be determined in the context of the facts of the particular case. [See
Irrigation Departmentv. G.C. Roy, [1992] I SCC 508. When a bench-mark
is fixed or the court grants interest at the agreed rate, it may not be
necessary to give reasons but where interest is granted at a higher or lessor B
rate, some reasons are required to be assigned.

By reason of Regulation 44, as substituted in 2002, the discretionary
jurisdiction of the Board is curtailed. It in terms of Regulations 1997 could
award interest by way of damages but by reason of Regulation 2002, its
power is limited to grant interest to compensate the shareholders for the C
loss suffered by them arising out of the delay in making the public offer.
The courts of law can take judicial notice of both inflation as also fall in
bank rate of interest. The bank rate of interest both for commercial purpose
and other purposes had been the subject-matter of statutory provisions as
also the judge-made laws. Even in cases of victims of motor vehicles D
accidents, the courts have upon taking note of the fall in the rate of ir.terest
held that 9% interest to be reasonable. [See Kaushnuma Begum (supra),
and HS. Ahammed Hussain (supra) and Patricia Jean Mahajan (supra)]

The statutory changes brought about must be noticed by the cou11 E
keeping in view the fact that the nature of jurisdiction by the Board has
been changed. The mischief rule also in this case should be applied.
Furthermore while construing such provisions, the courts must take into
consideration the provisions of the law as had been interpreted by courts
prior thereto.
F
By way of an example we may notice that the proviso appended to
sub-sections (I) and (2) of Section 34 of Code of Civil Procedure provides
for the grant of rate at which moneys are lent or advanced by nationalized
banks in relation to commercial transactions.
G
In DDA v. Mis Surgical Cooperative Industrial Estate Ltd. and
Others, [1993] Supp. 4 SCC 20 whereupon Mr. Rawal has placed reliance,
15% interest was directed to be paid only in favour of those members who
had already been allotted plots and made some payments, on a suggestion
made by the court, as would appear from the following : H
868 SUPREME COURT REPORTS [2004) SUPP. 3 S.C.R.

A " ... At the rate of 15% interest the amount would be considerably
less yet we suggested to the learned counsel for these members
to ascertain from their clients if they would be willing to purchase
the plots at 50% of the price realised in the last auction. They
conveyed their willingness to pay that price i.e. 50% of Rs. 10,756
per square metre. Mr. Arun Jaitley, the learned counsel for the
B Delhi Development Authority submitted that although he had no
instructions from his clients in the matter his clients would abide
by any just, reasonable and fair order that this Court would make
in the facts and circumstances of the case ...."

C The said decision, therefore, has no application to the fact of the
present matter.

We also do not agree with the contention that the payment of interest
for delay in making the public offer is a commercial transaction.

D While determining the cases of commercial transaction also, fall in
rate of interest has been taken note of by this Court in Citibank NA. Etc.
v. Standard Chartered Bank and Others Etc., [2004) 1 SCC 12, Para 62
and Citibank NA. v. Standard Chartered Bank Etc., [2004) 6 SCC 1, para
54.
E It is at this stage relevant to note that the rate of interest at the rate
of 15% as directed by the Board has been affirmed by the Tribunal stating:

" ... Even on applying the said test, it does not appear to me that
the 15% interest directed to be paid to the shareholders as
F compensation for the delay involved in making the payment in the
Appellants' case is unjust. In this context it is to be noted that the
payment was to be made, in case the offer had been made
according to the provisions of the Takeover Regulations, by
22.3.1998 and the amount to be so paid remains unpaid till date.
Therefore, in my view the interest rate applicable should be that
G rate which was prevailing on 22.3.1998 and not the one prevailing
on the date of the impugned order. According to the information
furnished by the Appellants the rate of interest payable on deposits
for a period of 3 years and above by nationalized banks was
around 12% at that point of time. In this context one should not
H fail to note that the interest is directed to be paid to the
CLARI ANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF IJSDIA [SINHA, J.] 869

shareholders to compensate the loss. Had the shareholder received A
the money on due date, in the normal course what return he would
have received by effectively investing that money has to be taken
into consideration. The amount was due on 22.3.1998. The then
existing rate of 12%, if calculated on quarterly rest basis, at the
end of 2002 works out to more than 15% and therefore, even if B
the interest is worked out in relation to the rate of interest payable
on deposit by nationalized banks, the rate of interest payable by
the Appellants fixed at 15% p.a. by the Respondent in the instant
case cannot be considered unjust, and the same is also not contrary
to the view held by the Hon'ble Supreme Court in Kaushnuma
Begum's case or against the provisions of regulation 44(i) .... " C

The observation of the Tribunal was on a wrong premise as the rate
of interest in a case of fixed deposit in a nationalized bank was not to be
calculated on quarterly rest basis. Furthermore, the bank rate of interest
which was prevailing. in 1998 had also fallen down. D

The rate of interest at the relevant time as was payable by Syndicate
Bank, a nationalized bank, is as under :

"FIXED DEPOSIT INTEREST RA TES FOR E
THREE YEARS AND ABOVE
FROM SYNDICATE BANK

SI.No. From To Percentage
I. 02.07.1996 30.04.1997 13% F
2. 01.05.1997 31.08.1997 12%
~
.) . 01.09.1997 31.10.1997 11%
4. 01.11.1997 21.12.1997 10%
5. 22.12.1997 14.01.1998 11%
G
6. 15.01.1998 21.01.1998 11.5%
7. 09.02.1998 I I.I 0. 1998 12%
8. 12.10.1998 14.03.1999 11.5%
9. 15.03.1999 04.04.1999 11.25%
1 H
870 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A IO. 05.04.1999 30.04.1999 I 1%
I I. 01.05.1999 22.08.1999 10.5%
12. 23.08.1999 I I. I 1.1999 10.25%
13. 12.I 1.1999 09.04.2000 9.75%

B 14. 10.04.2000 31.08.2000 9%
15. 01 .09.2000 15.10.2000 9.5%
I 6. 16.10.2000 31.12.2000 10%
I 7. 01.01.2001 I I .02.2001 9.75%

c I 8. 12.02.2001 14.03.2001 10%
19. 15.03.2001 09.07.2001 9.5%
20. 10.07.2001 14.09.2001 9.25%
21. 15.09.2001 15. 12.2001 8.75%

D 22. 16.12.2001 20.01.2002 8.50%
23. 21.01.2002 07.04.2002 8.25%
24. 08.04.2002 06.08.2002 7.75%
25. 07.08.2002 27.10.2002 7.50%"

E
While awarding interest, it is required to bear in mind that interest
would be payable on the maximum price of the share which was Rs. 318
and not on Rs. 220 which was not the prevailing price in 1998, as a result
whereof not only a shareholder would be getting a higher price but would
F also be getting interest thereupon.

So far as the contention regarding the applicability of dynamics of
the market or its being a volatile one is concerned, the same, in our opinion,
has nothing to do with rate of interest inasmuch both the Board and the
Tribunal proceeded on the basis that the shareholders are to be compensated
G by way of interest for delayed payment. In that view of the matter, the
relevance of rate of interest payable for the period it is payable and the
persons who are entitled to be compensated were required to be determined.
Rate of interest should be a reasonable one as the same became payable
for the delay in making the payment, subject of course to the statutory
H provision contained in the Regulations. As noticed hereinbefore, the
CLARIANT INTERNATIONAL LTD. '" SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 871

discretion of the Board vis-a-vis the Tribunal had been curtailed. There is A
a change even in relation to the nature of discretion of the Board. The Board
and the Tribunal , thus, failed to apply the ,correct principles of law in
determining the rate of interest payable in this case.

To whom interest is payable:
B
It is not in dispute that the acquirer contravened Regulation 12 while
acquiring the control of the target company. Regulation 14(3) provides that
a public announcement referred to in Regulation 12 is required to be made
by the merchant banker not later than four working days after any such
change or changes are decided to be made as would result in the acquisition C
of control over the target company by the acquirer. Clause 4 of Regulation
15 provides that the offer under these Regulations shall be deemed to have
been made on the date on which the public announcement appeared in any
of the newspapers referred to in clause ( 1). The announcement of offer
in terms of Regulation 16(xi) is to contain that date by w~1ich D
individual letters of offer would be posted to each of the shareholders.
Regulation 20 provides for the minimum offer price. In terms of clause
(I) of Regulation 21, the public offer is required to be made by the acquirer
to the shareholders of the target company to acquire from them an
aggregate minimum 20% of the voting capital of the company.
E
The Board arrived at an inference that the acquirer had acquired the
control of the target company as the special vehicle company on 19.5.2000,
The liability of the acquirer to pay interest should be jud,.,ed in the
aforementioned context.
F
Shareholder :

To become a shareholder, a person has to fulfill two conditions,
namely, he must agree in writing to become a member of a company and
whose name should be entered in its register of members. The members
holding equity share capital of company and whose names are entered as G
beneficial owner in the records of the depository shall be deemed to be the
members of the concerned company.

In Palmer's Company Law, 23rd Edn. at page 154, para 12-07, it is
~~: H
872 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A "12-07 Subscribers as members The subscribers of the
memorandum are deemed to have agreed to become members
of the company, and on its registration shall be entered as
members in its register of members (1948 Act, s. 26(1))."

It is further stated :
B
"49.04. Other members In the case of members other than
the subscribers to the memorandum two essential conditions
have to be satisfied to constitute a person a member:

C (I) an agreement to become a member; and

(2) entry on the register.

These two conditions are cumulative: unless they are both satisfied,
the person in question has not acquired the status of member.
D
Thus, an agreement to become a member alone does not create
the status of membership; i• is a condition precedent to the
acquisition of such status that the shareholder's name should be
entered on the register. Conversely, the company is not entitled
to place a person's name on the register without his having agreed
E to become a member; a person improperly registered without his
assent is not bound thereby and may have his name removed from
the register."

In Mis Howrah Trading Co., Ltd. v. The Commissioner of Income
F Tax, Calcutta, [1959] Supp. 2 SCR 448, the law is stated thus :

"The question that falls for consideration is whether the meaning
given to the expression "shareholder" used in section 18(5) of the
Act by these cases is correct. No valid reason exists why
"shareholder" as used in section 18(5) should mean a person other
G than the one denoted by the same expression in the Indian
Companies Act, 1913. In In re Wala Wynaad Indian Gold Mining
Company Chitty, J., observed :

"I use now myself the term which is common in the courts, 'a
H shareholder', that means the holder of the shares. It is the common
CLARIANT INTERNATIONAL LTD.'· SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 873

tenn used, and only means the person who holds the shares by A
having his name on the register.""

[See also Balkrishan Gupta and Others v. Swadeshi Polytex Ltd. and
Another, [1985] 2 SCC 167.]

The rights of a shareholder are purely contractual and would be such B
which are granted to him by Company's Memorandum or Articles of
Association together with the statutory rights conferred on him by the
Companies Act.

A shareholder having regard to the direction issued by the Tribunal C
must be one who was a shareholder on the triggering date. Purpose and
object of creating a legal fiction is well-known. Once a fiction is created
upon imagining a certain state of affairs, the imagination cannot be
pennitted to be boggled when it comes to the inevitable corollaries thereof.
[See Dipak Chandra Ruhidas v. Chandan Kumar Sarkar, [2003] 7 SCC D
66], ITW Signode India Ltd. v. CCE, [2004 3 SCC 48, and Ashok Leyland
Ltd. v. State of Tamil Nadu, [2004] 3 SCC l].

Directions by the Board are required to be issued for the purpose of
protecting the interest of the investors which would imply that such
protection be extended to the persons who are entitled thereto and not any E
other shareholder who would get the same by windfall. The shareholders
contemplated under clause (i) of Regulation 44 must be those shareholders
whose shares have been accepted upon public announcement of offer and
who have suffered loss owing to blockage of amount by not being able
to sell the shares held by them. The object of the said provision is to protect F
the interest of such shareholders who had suffered a loss for delay in
making the public announcement and, thus, may have to be compensated.
The very fact that the bench-mark as regard the rate of interest has been
fixed is also a pointer to the fact that the interest is to be paid to such
investors who had suffered some loss.
G
While compensating a person, the court should see that he is not
unjustly enriched. Interest is directed to be paid on the default of the
acquirer occasioning loss suffered by an investor of his money. The
question of paying interest by way of compensation to persons who had
not suffered any loss, thus, would not arise. H
874 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A Interest was, therefore, payable only to such persons who were
shareholders of target company as on the triggering date.

Deposits made by the Appellants in this Court Effect :

B It is not in dispute that the appellants pursuant to an order of this Court
dated 28th April, 2003 have deposited a sum of Rs. 111.50 crores which
has been calculated on the following basis :

"1. Total paid-up capital of Colour-Chem Ltd.
(By number of shares) 11,650,000
c 2. No. of shares to be acquired through
open offer 2,330,000

3. Estimated number of shares available
for offer having eligibility for interest as
D per SAT Order (as of 25.4.2003) 3,724,224

4. Ratio of acceptance as per Regulation 40%
21(6)

5. No. of shares likely to be acquired as
E per Regulation 21(6) from the lot eligible
for Interest 1,489,690

6. Balance to be acquired from the lot of
shares not eligible for interest 840,310

7. Total price consideration
F
@ Rs. 318 per share 740,940,000

8. Total interest payable in respect of shares
at SI. No. 5 above As per the Open Offer-
@ 15% p.a. for the period 22.3.1998 to
G 21.6.2003 (1918 days) Rs. 250.65/share) Rs. 373,390,799

TOTAL AMOUNT TO BE DEPOSITED
AS PER SUPREME COURT ORDER OF
28TH APRIL, 2003 Rs. 1,114,330,799

H ROUNDED OFF TO : Rs. 111.50 crores"
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 875

The estimated number of shares available as per order of the Tribunal A
as on 25.4.2003 would be about 60% of the total shareholders, who would
be benefitted.

We have hereinbefore noticed that the offer price of Rs. 318 per
equity share would be payable as on 24.2.1998 although the market price B
thereof at the relevant time was only Rs. 220 .

We may notice the difference on monetary terms on the amount
payable to the investors on public announcement cioffer, as would appear
from the following chart :
c
TOTAL PAID-UP CAPITAL
OF COLOUR-CHEM LTD. 1,16,50,000 EQUITY SHARES

FACE VALUE RUPEES I 0 EACH

OPEN OFFER PRICE RUPEES 318 PER SHARE
D
NO. OF SHARES TO BE
ACQUIRED IN THE OPEN
OFFER 20% OF THE PAID-UP
CAPITAL 23.30 LAKHS
SHARES E
TOTAL CONSIDERATION RUPEES 7409.40 LAKHS

Interest Rate per Period 24.2.1998 Interest per Share
Annum to 20.6.2003 (Rs.)
A B c F
15% 5916.35 253.92
14% 5521.93 237.00
13% 5127.51 220.07
12% 4733.08 203.14 G
11% 4338.66 186.21
10% 3944.24 169.28
9% 3549.81 152.35
8% 3155.39 135.42
H
876 SUPREME COURT REPORTS (2004) SUPP. 3 S.C.R.

A The difference of amount calculated on the basis of interest at the rate
of 10% and 15% would be about Rs.85 per equity share. If shareholders
are to be compensated owing to the act of delay on the part of the acquirc,r
in making the public announcement, in a case of this nature, an attempt
should be made to strike a delicate balance. The bank rate of interest
B payable by the nationalized banks on a fixed deposit for the period from
1998 to 2003 was around 9%. This fact has been accepted by the Tribunal.
It has also been accepted by the Tribunal that the decisions of this Court
relating to rate of interest payable by nationalized banks on fixed deposits
and on the compensation amount fixed under the Motor Vehicles Act
C would be 9% p.a. The Tribunal has applied the said test btlt, as discussed
hereinbefore, committed two apparent errors, namely, it did not think fit
to calculate the mean of the rate of interest payable by the banks and; it
thought that quarterly rests is payable on the deposits made by an investor
in a bank. Quarterly rests are only payable in commercial transactions when
a bank grants loans.
D
When any criteria is fixed by a statute or by a policy, an attempt
should be made by the authority making the delegated legislation to follow
the policy formulation broadly and substantially and in conformity thereof.
[See Secretary, Ministry of Chemicals & Fertilizers, Government of India
E v. Cipla Ltd. and Others, [2003) 7 sec I - Para 4.1)

The rate of interes.t fixed by the Board and the Tribunal, thus, in our
opinion, was not correct.

F Effect of Board being an expert body:

The modern sociological condition as also the needs of the time have
necessitated growth of administrative law and administrative tribunal.
Executive functions of the State calls for exercise of discretion. The
executive also, thus, performs quasi judicial and quasi legislative functions
G and, in this view of the matter, the administrative adjudication has become
an indispensable part of the modern state activity.

Administrative Tribunals may be called a specialized court of law,
although it does not fulfil the criteria of a law court as is ordinarily
H understood inasmuch as it cannot like an ordinary court of law entertain
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 877

suits on various matters, including the matter relating to the vires of A
legislation. However, such a Tribunal like ordinary law courts are bound
by the rules of evidence and procedure as laid down under the law and are
required to determine the !is brought before it strictly in accordance with
the law.
B
0. Hood Phillips ·in his 'Constitutional and Administrative Law',
Eight Edition, at page 686 under the Chapter "Tribunals" has stated as
follows :-

"These are independent statutory tribunals whose function is
judicial. The tribunals are so varied in composition, method of C
appointment, functions and procedure, and in their relation to
Ministers on the one hand and the ordinary courts on the other,
that a satisfactory formal classification iS impossible."

Reasons for creating special tribunals, according to the learned D
author, are:

(i) Expert knowledge

(ii) Cheapness
E
(iii) Speed

(iv) Flexibility

(v) Informality
F
At para 30-021 at page 692 of the said treatise, it is stated :

"Appeals from tribunals

A party to proceedings before most statutory tribunals, who is G
dissatisfied with the tribunal's decision on a point of law, may
either appeal to the High Court or require the tribunal to state a
case for the opinion of the High Court. Appeal lies by leave of
the High Court or of the Court of Appeal to the Court of Appeal,
and thence to the House of Lords (section 11 )." H
878 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A In 'Environmental Enforcement: The Need for a Specialist Court' by
Robert Carnwath published in (1992) Journal of Planning and Environment
Law at page 799, the requirements of having an environment court in place
of the ordinary courts were highlighted. The author had submitted a report
known as "Enforcing Planning Control" and on referring thereto, it was
B noticed:

"Most of the report's substantive recommendations for reform of
the planning enforcement system were adopted by the Government
and incorporated in the Planning and Compensation Act 1991.
There was no formal response to the suggestions for a unified
c court system. This was hardly surprising, since reform of the court
system is not within the remit of the Department of the Environment.

Last year, however, the idea was given a new impetus from an
unexpected quarter. Sir Harry Woolf gave his Gamer lecture to
D U.K.E.L.A. on the theme "Are the Judiciary Environmentally
Myopic?" He commented on the problems of increasing
specialization in environmental law; and on the difficulty of the
Courts, in their present form, moving beyond their traditional role
of detached "Wednesbury" review. He went on to discuss the
E benefits of:

"having a Tribunal with a general responsibility for overseeing
and enforcing the safeguards provided for the protection of
the environment...The tribunal could be granted a wider
discretion to determine its procedure so that it was able to
F bring to bear its specialist experience of environmental
issues in the most effective way."

A key feature of this Tribunal would be flexibility. Possible
innovations would be the involvement of expertise from other
G professions (architects, surveyors, etc.); "multidisciplined
adjudicating panels"; broad discretion over rights of appearance;
power to instruct independent counsel on behalf of the Tribunal
or members of the public; resources for direct investigation by the
Tribunal itself; and incorporation into the Tribunal of the existing
H inspectorate to deal with "cases of a lesser dimension."
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 879

The Board is indisputably an expert body. But when it exercises its A
quasi judicial functions; its decisions are subject to appeal. The Appellate
Tribunal is also an expert Tribunal. Only such persons who have the
requisite qualifications are to be appointed as members thereof as would
appear from Sub-section 2 of Section I SM of the said Act which reads
thus:-
B
"15.M Qualification for appointment as Presiding Officer or
Member of the. Securities Appellate Tribunal. -

(2) A person shall not be qualified for appointment as Member C
of a Securities Appellate Tribunal unless he is a person of ability,
integrity and standing who has shown capacity in dealing with
problems relating to securities market and has qualification and
experience of corporate law, securities laws, finance, economics
or accountancy:
D
Provided that a member of the Board or any person holding a post
at senior management level equivalent to Executive Director in
the Board shall not be appointed as Presiding Officer or Member
of a Securities Appellate Tribunal during his service or tenure as
such with the Board or within two years from the date on which E
he ceases to hold office as such in the Board."

The conflict of jurisdiction between an expert tribunal vis-a-vis the
courts in the context of the doctrine of separation of powers poses a
problem even in other countries. [For a detailed discussion see the Article F
'Powers of the Takeovers Panel and their Effect upon ASIC and the Court'
by Barbara Mescher, [2002] 76 Australian Law Journal, p. 119].

In Australia, the takeover Panel has also a function of identifying and
notifying the third parties who are affected by a decision. Takeover panel
created under the Corporate Law Economic Reform Programme Act, 1999, G
as amended by the Corporation Act, 200 I, is also an expert panel.

Throughout the world, specialized adjudicators are performing
numerous roles. There are diverse specialized tribunals in America as also
in the Commonwealth countries. In certain States, statutes have been H
880 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A enacted authorizing appeals to the Administrative Division which jurisdiction
used to be exercised by the High Court alone. The appeals range from
questions oflaw to selected questions of fact, to full rehearing of all issues.
[See Stephen Legomsky's 'Specialized Justice'].

B Had the intention of the Parliament been to limit the jurisdiction of
the Tribunal, it could say so explicitly as it has been done in terms of
Section 15Z of the Act whereby the jurisdiction of this Court to hear the
appeal is limited to the question of law.

The jurisdiction of the appellate authority under the Act is not in any
C way fettered by the statute and, thus, it exercises all the jurisdiction as that
of the Board. It can exercise its discretionary jurisdiction in the same
manner as the Board.

The SEBI Act confers a wide jurisdiction upon foe Board. Its duties
D and functions thereunder, run counter to the doctrine of separation of
powers. Integration of power by vesting legislative, executive and judicial
powers in the same body, in future, may raise a several public law concerns
as the principle of control of one body over the other was the cent.ral theme
underlying the doctrine of separation of powers.
E
Our Constitution although does not incorporate the doctrine of
separation of powers in its full rigour but it does make horizontal division
of powers between the Legislature, Executive and Judiciary. [See Rai Sahib
Ram Jawaya Kapur and Others v. The State of Punjab, AIR (1955) SC
F 549].
The Board exercises its legislative power by making regulations,
executive power by administering the regulations framed by it and taking
action against any entity violating these regulations and judicial power by
adjudicating disputes in the implementation thereof. The only check upon
G exercise of such wide ranging power is that it must comply with the
Constitution and the Act. In that view of the matter, where an expert
Tribunal has been constituted, the scrutiny at its end must be held to be
of wide import. The Tribunal, another expert body, must, thus, be allowed
to exercise its own jurisdiction conferred on it by the statute without any
H limitation.
CLARIANT INTERNATIONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 88 J

In Cellular Operators Association of India and Others v. Union of A
India and Others, [2003] 3 SCC 186, this Court observed :

"TDSAT was required to exercise its jurisdiction in terms of
Section l 4A of the Act. TDSAT itself is an expert body and its
jurisdiction is wide having regard to sub-section (7) of Section B
l 4A thereof. Its jurisdiction extends to examining the legality,
propriety or correctness of a direction/order or decision of the
authority in terms of sub-section (2) of Section 14 as also the
dispute made in an application under sub-section (1) thereof. The
approach of the learned TDSAT, being on the premise that its C
jurisdiction is limited or akin to the power of judicial review is,
therefore, wholly unsustainable. The extent of jurisdiction of a
court or a Tribunal depends upon the relevant statute. TDSAT is
a creature of a statute. Its jurisdiction is also conferred by a statute.
The purpose of creation of TDSAT has expressly been stated by
the Parliament in the Amending Act of2000. TDSAT, thus, failed D
to take into consideration the amplitude of its jurisdiction and thus
misdirected itself in law".

The court noticed the celebrated book on "Judicial Review of
Administrative Law" by H.W.R. Wade and C.F. Forsyth and held : E

"The rule as regard deference to expert bodies applies only in
respect of a reviewing court and not to an expert tribunal. It may
not be the function of a court exercising power of judicial review
to act as a super-model as has been stated in Administrative Law F
by Bernard Schwartz, 3rd edition in para IO.I at page 625; but
the same would not be a case where an expert tribunal has been
constituted only with a view to determine the correctness of an
order passed by another expert body. The remedy under Section
14 of the Act is not a supervisory one. TDSAT's jurisdiction is
not akin to a court issuing a writ of certiorari. The tribunal G
although is not a court, it has all th.e trappings of a Court. Its
functions are judicial.

In 'Jurisdiction and Illegality' by Amnon Rubinstein a
judicial power in contrast to the reviewing power is stated thus: H
882 SUPREME COURT REPORTS (2004] SUPP. 3 S.C.R.

A "A judicial power, on the other hand, denotes a process in ...
which ascertainable legal rules are applied and which,
therefore, is subject to an objectively correct solution. But
that, as will be seen, does not mean that the repository of
such a power is under an enforceable d•1ty to arrive at that
solution. The legal rules applied are capable of various
B
interpretations and the repository of power, using his own
reasoning faculties, may deviate from that solution which the
law regards as the objectively correct one."

The regulatory bodies exercise wide jurisdiction. They lay
c down the law. They may prosecute. They may punish. Intrinsically,
they act like an internal audit. They may fix the price, they may
fix the area of operation and so on and so forth. While doing so,
they may, as in the present case, interfere with the existing rights
of the licensees".
D
In West Bengal Electricity Regulatory Commission v. CESC Ltd.,
[2002] 8 SCC 715, a Bench of this Court, (in which one of us Santosh
Hegde, J. was a member), observed :

E "From s.4 of the 1998 Act, we notice that the Central Electricity
Regulatory Commission which has a judicial member as also a
number of other members having varied qualifications, is better
equipped to appreciate the technical and factual questions involved
in the appeals arising from the orders of the Commission. Without
meaning any disrespect to the judges of the High Court, we think
F neither the High Court nor the Supreme Court would in reality be
appropriate appellate forums in dealing with this type of factual
and technical matters. Therefore, we recommend that the appellate
power against an order of the state commission under the 1998
Act should be conferred either on the Central Electricity Regulatory
G Commission or on a similar body. We notice that under the
Telecom Regulatory Authority of India Act 1997 in chapter IV,
a similar provision is made for an appeal to a special appellate
tribunal and thereafter a further appeal to the Supreme Court on
questions oflaw only. We think a similar appellate provisions may
~
H be considered to make the relief of appeal more effective."
CLARI ANT INTERNATJONAL LTD. v. SECURITIES & EXCHANGE BOARD OF INDIA [SINHA, J.] 883

The provisions of the 1992 Act and the Regulations framed thereunder A
squarely apply to the observations made by this Court in West Bengal
Electricity Regulation Commission (supra).

We may furthermore notice that in Part XI of the Electricity Act,
2003, an expert appellate tribunal for electricity in the light of the B
observations made by this Court has been constituted.

Dividend: Effect of

In view of our findings aforementioned, we are of the opinion that C
while calculating the amount of interest, the amount of dividend paid to
the shareholders should be excluded. The shareholders who by reason of
default on the part of acquirer have been deprived of interest payable on
the difference of the offer price and market price would be entitled to
interest as direction to pay interest being not penal in nature, they cannot
make double gains. The Tribunal, in our opinion, has committed an error D
in holding that the dividend being a participatory benefit available to a
shareholder and being distinct from interest, the same should not be taken
into consideration. The regulation fixes a benchmark as regard rate of
interest. If any amount has been received by the shareholders by
keeping the shares till a public offer was made, the amounts so E
received by him by way of dividend should be set off. We would
reiterate that the shareholders did not have any right to get interest
and in effect and substance they were only to be compensated for the loss
of interest and nothing more. On the same analogy, if they had received
some gains by holding the shares fairly for a long period of five years, the F
amount of dividend cannot be permitted to be retained by them. The
amount of dividend should, thus, be adjusted towards the interest payable
to them.

Conclusion: G

We, therefore, direct, having regard to the peculiar facts and
circumstances of the case, that the interest of justice would be sub-served,
if the rate of interest is directed to be paid @ I 0% per annum from March
1998 till 2003. H
884 SUPREME COURT REPORTS [2004] SUPP. 3 S.C.R.

A The interest at the rate of I 0% per annum is directed in stead and place
of normal 9% having regard to the fact that the Appellants themselves in
their Memorandum of Appeal filed before the Tribunal had contended that
the Board should have granted interest at the rate of 10% per annum instead
of 15%.

B
If any dividend was paid during the sai~ period, the same shall be
adjusted with the amount of interest.

The appellants had deposited a total amount of 111.50 crores which
sums have been invested. The interest accruing thereupon shall enure to
C the benefit of those shareholders who were entitled to the payment of
interest for the period during which the said amount remained invested in
terms of the order of this Court..

We uphold that part of the decision of the Tribunal whereby it was
D held that those persons who were the shareholders till 24.2.1998 and
continued to be shareholders on the closure day of public offer alone' would
be entitled to interest.

The case of the Administrator of the Specified Undertaking of the
Unit Trust of India, however, stands on a different footing. The facts of
E the matter, as noticed hereinbefore, clearly go to show that in effect and
substance, the Appellants are the successors of the U.T.l. They being the
statutory beneficiary, are entitled to interest irrespective of the fact that it
came into being after 1998.

F For the reasons aforementioned, Civil Appeal Nos. 3183 of 2003,
filed by the Acquirer and D3952 of2004 filed by the Administrator of the
Specified Undertaking of the Unit Trust of India, are allowed; whereas
Civil Appeal No. 3701 of2003 filed by SEBI and Civil Appeal No. 3872
of 2003 filed by Umeshkumar G. Mehta are dismissed. No costs.

G v.s.s. Appeals disposed of.

f''