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September 2010
ABU DHABI BRUSSELS DUBAI FRANKFURT HONG KONG LONDON MADRID MILANMUNICH NEW YORK PARIS SINGAPORE STOCKHOLM TOKYO WASHINGTON DC
India group briefing
Project finance in India: Rupee loandocumentation and issues forinternational sponsors
India's infrastructure market continues toattract international interest. In 2009, Indiatopped global project finance league tableswith US$30bn of deals transacted in thecountry according to figures released byReuters Project Finance International andThomson Reuters SDC1. Infrastructuredevelopment in India is estimated torequire US$1.7tr over the next decade2.The Eleventh Five-Year Plan contemplatesmore than US$500bn of investment ininfrastructure by 2012. Public privatepartnerships are projected to account fornearly 30 per cent of the proposedinvestment.
Much of the foreign investment in infrastructure has
been by way of equity. The roads sector has attracted
several international construction companies, such as
Atlantia of Italy, Isolux Corsan of Spain and John Laing
of the UK3. All four airport PPPs that have achieved
financial closure to date have similarly benefited from
foreign equity participation4; foreign sponsors and
venture capitalists are also showing interest in India's
burgeoning power sector. Morgan Stanley, Goldman
Sachs, General Atlantic, Everstone Capital and
Norwest Venture Partners have invested US$425m
into Asian Genco, an infrastructure company that
invests in Indian power generation5, and Singapore's
Sembcorp recently concluded a joint venture
agreement with an Indian infrastructure company to
set up a 1,320 MW power plant at Krishnapatnam in
the state of Andhra Pradesh6.
Project financing structures in India are generally no
different to those prevalent internationally. Foreign
sponsors may enter into joint venture agreementswith an Indian partner to form the special purpose
vehicle (SPV) which executes the project. The SPV
may then enter into a concession agreement with an
Indian government entity, construction and operating
agreements with various contractors, and financing
agreements with lenders. However, lending practices
among Indian lenders can differ significantly from
those in the international project finance market.
This briefing examines the key issues arising for
foreign sponsors participating in a joint venture SPV
borrowing from a consortium of Indian banks to
finance a project where the debt is secured only by
the assets and cash flows of the project itself and
recourse to sponsors is limited to the amount of their
equity commitment and, if provided, any completion
or cost overrun support, i.e. on a limited recourse
basis.
Key commercial issues
Interest rates and margin resets
Until recently, interest rates for Indian Rupee (INR)
loans were based on a reference rate, usually the
prime lending rate (PLR). From 2003, banks have
been free to set their PLRs but in the absence of a well
developed interbank market these tracked the Reserve
Bank of India's (RBI) repo and reverse repo rates. This
did not, however, result in convergence of the PLRs ofthe major banks into a benchmark reference rate
similar to, for example, LIBOR. PLRs have been
phased out from 1 July 2010 in favour of more
transparent base rates7, although this will still not
result in a single reference rate across all banks. The
National Stock Exchange together with the Clearing
Corporation of India does, however, provide a
benchmark reference rate, viz. the Mumbai Interbank
Offer Rate or MIBOR, but absent a term money market,
there are no reliable interest rate quotes available for
one/three/six/nine/twelve-month transactions.
Hedging of interest rate risk becomes almost
impossible in the absence of a benchmark reference
rate. While it may be theoretically possible to hedge
individual loans from each bank in the syndicate, the
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administrative difficulty in managing a large number of
swaps, the costs involved and the absence of any
multiple transaction payment netting systems in India
render this option economically unattractive. Problems
could also occur during syndication if a loan was
hedged and the incoming lender's base rate differed
significantly from the outgoing lender's base rate. This
would require termination of the existing hedge and
entry into a new hedge in respect of the new loan,
possibly resulting in considerable breakage costs.
Long term fixed rates are generally not available on
INR borrowings nor can interest costs be passed
through under the relevant concession agreements, so
fluctuating base rates are simply a commercial reality.
There are, however, a number of mitigating factorswhich have so far provided considerable comfort to
Indian borrowers:
PLRs (now phased out) have not fluctuatedsignificantly in the past ten years and range
between 10 and 15 per cent8; major banks have
currently fixed their base rates at between 7 and 8
per cent9;
nearly 80 per cent of the lenders in the Indianproject finance market are government-owned
banks and financial institutions, which leads to de
facto convergence of reference rates; and
borrowers have sometimes managed tosuccessfully negotiate fixed rates during the
construction period or reference rates linked to
yields on Government of India securities.
Another feature of interest rates that concerns foreign
sponsors is the individual lenders' ability to reset
margins. Margins are reset annually or semi-annually
after a certain period. Increases are uncapped
although the risk of significant increases recedes
somewhat once construction is complete as borrowers
can usually refinance at better rates.
Unpredictable margins together with the absence of a
benchmark reference rate and effective hedging
mechanisms means that financing costs cannot be
determined or predicted with certainty. This gives rise
(among other things) to monitoring issues for lenders
because the value of forward-looking cover ratios,
such as, for example, the loan life cover ratio or the
project life cover ratio is questionable in the absence
of fixed financing costs.
External funding could be considered as an
alternative to INR borrowings to mitigate interest raterisk, but:
regulations currently restrict this to US$500m in afinancial year under the "automatic" route10
provided certain other conditions are fulfilled, i.e.
RBI approvals are required for external borrowings
outside these parameters; and
concession agreements do not envisage transfer offoreign exchange risk to the relevant government
entities and foreign exchange forwards are
typically only available for up to two years which
makes managing this risk difficult, although some
recent projects have benefited from external
funding11.
Consequently, debt funding for planned projects is
expected to come mostly from domestic sources at
least in the medium term.
Prepayment premiaIt is standard practice in the Indian finance market to
require the payment of a premium on prepayment of
loans. INR loan documentation will typically allow
prepayments on the dates on which margins are reset
(annually or semi-annually), subject to the payment of
a premium. In a project finance context, prepayments
during the construction will not usually be allowed,
which is in line with international practice.
Role of facility agent
The facility agent's role under INR loan documentation
can sometimes be confined to receiving and
disseminating information to the lenders. A facility
agent under LMA-based loan documentation is the
interface between the borrower and the lenders and
also between the lenders themselves, thus removing
some of the administrative burden from the borrower.
Its functions would typically include disbursing loans
and repayments, monitoring covenants and facilitating
the lender decision-making process. The absence of an
LMA-style facility agent means that:
conditions precedent are confirmed by each lenderseparately to the borrower;
loan disbursements are made by each lenderseparately to the borrower;
payments under the financing documents includingloan repayments, interest payments, prepayments,
etc. are made by the borrower separately to each
lender; and
requests for amendments and waivers under thefinancing documents are made separately by the
borrower to each lender.
The need for a facility agent is questionable if its role
is to be largely ceremonial but it is unclear why some
facility agents under INR loan documentation havesuch a limited role, particularly when there are no
legal or regulatory impediments and Indian banks
routinely undertake LMA-type agency functions under
their foreign currency loan agreements.
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Lender decision-making
Lender decision-making is typically regulated by an
intercreditor agreement between the lenders. The
borrower is not generally a party to the intercreditor
agreement and lenders will usually resist legal
obligations to provide copies of the intercreditor
agreement or keep the borrower informed of any
amendments to it. The borrower is, consequently,
unable to enforce the terms of the intercreditor
agreement against the lenders as there is no
legislation in India similar to the UK Contracts (Rights
of Third Parties) Act 1999. There is, therefore, no
transparency with regards to the lender decision-
making process, which can lead to considerable
uncertainty for the borrower. Borrowers have
occasionally succeeded in negotiating provisions intheir loan agreements requiring lender decision-
making to be by majority. The manner in which that
majority is determined will, however, still be regulated
by the intercreditor agreement, which can be amended
without borrower consent.
Covenant package
While the covenant package for Indian project finance
transactions is not dissimilar to that prevalent in
international project finance transactions in terms of
scope, when examined in detail, it is often onerous,
characterised by "hair trigger" representations,covenants and defaults. In particular, the following
should be noted by foreign sponsors:
Cred i t i n fo rma t ion
The Credit Information Bureau (India) Limited (CIBIL)
was established in 2000 for "collecting, collating and
disseminating credit information pertaining to both
commercial and consumer borrowers, to a closed user
group of Members"12. Most banks and financial
institutions are members of CIBIL and have access to
information stored within it. RBI guidelines require
banks to report "wilful defaulters" to CIBIL or any
similar agency authorised by the RBI13. INR loan
documentation will give lenders unrestricted rights to
report borrower defaults to CIBIL although in practice
lenders will be loathe to report defaults because this
could require them to accelerate the loan and declare
it to be a non-performing asset (NPA) (please refer to
the section "RBI regulations" below).
Commerc ia l t e rms
Although commercial prudence may preclude lenders
from accelerating where "immaterial" defaults arise as
a result of extremely tight covenants, lenders will have
sufficient leverage to renegotiate key commercialterms as a quid pro quo for waivers, the most
significant of these being margins (which as noted
above are reset periodically). The existence of a
default would enable lenders to demand margins that
are significantly higher than those prevailing in the
market. Whether or not lenders use their leverage to
obtain better terms will obviously depend on the
relative bargaining position of the parties, with
financially weaker Indian borrowers and foreign
sponsored borrowers exposed to significantly greater
risks compared to stronger Indian (or Indian-
sponsored) borrowers. Indian borrowers will usually
seek to build in sufficient cure periods to ensure
flexibility or to weed out lenders that are not
amenable to it at the term sheet stage.
A ppo in tm en t o f consu l t an t s and nom inee
d i rec to rs
Another peculiarity of INR loan documentation for
project finance transactions is the lenders' ability toappoint technical, management or other consultants to
inquire into the operations of the borrower or the
project and report to the lenders almost at will.
International project finance documentation will
usually restrict such appointments to circumstances
where defaults or potential defaults are continuing.
It is also usual practice in India for financial
institutions providing credit facilities to companies to
appoint directors to the boards of those companies
although in a project finance context this is generally
limited to circumstances where a default is continuing.
The Indian Companies Act 1956 (Companies Act) does
not distinguish between "nominee" and other directors.
The function of a nominee director is primarily to
protect the interests of the entity nominating him/her.
This may result in conflict with shareholder interests
but the legal position is uncertain. Nominee directors
do, however, enjoy certain privileges. For example,
they are not subject to retirement by rotation
pursuant to section 255 or disqualification under
section 274(1)(g) of the Companies Act14.
Costs of appointing consultants and nominee directors
including their fees and expenses are required to be
borne by the borrower.
Sponsor support
It is not uncommon for Indian lenders to request
sponsor support that is not normally expected on
international project finance transactions. Thus, for
example, although the financing of the Jamnagar
Refinery Project was not secured by any sponsor
guarantee, the sponsor, Reliance Industries Limited,
did provide completion support for an uncapped
amount. Similarly, GMR Infrastructure provided
guarantees for both the Jadcharla-FarukhnagarHighway PPP and the Adloor-Yellareddy-Pochanpalli
Highway PPP projects15. This could be a significant
issue for international sponsors because not only
would it undermine the limited/non-recourse nature of
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the project but could also have significant balance
sheet impacts. The trend, however, appears to be
changing and several projects have achieved financial
closure without significant sponsor support.
Costs of taking security
Costs of taking security in India can seem prohibitive
compared to other jurisdictions. This is mainly due to
the high stamp duties payable on security documents,
which is on an ad valorem basis. In other words, the
stamp duty payable on a security document will
depend on the amount it secures16. The actual amount
payable will vary from state to state. Under India's
federal legislative system, the power to impose stamp
duty is divided between the central and state
governments; each state has the ability to enactstamp duty legislation in relation to security
documents17. A document is only subject to stamp
duty if it is executed in India. Documents executed
outside India will attract stamp duty when they are
brought into India, e.g. for the purpose of
enforcement. Unstamped documents will not be
admissible in evidence and will consequently be
unenforceable. Lenders will not wish to take risks
associated with not stamping documents and will
usually insist that they are stamped upfront. This
could be a significant issue because stamp duty costs
will inevitably be passed on to borrowers.
Key regulatory issues
Under the Indian Transfer of Property Act 1882, only
"English" mortgages18 enable mortgagees to enforce
security without recourse to judicial process. In all
other cases, security has to be enforced through the
courts. This is often a very slow and cumbersome
process taking up to 15 years19, which has heightened
the risk of borrower default. The Indian Government
has, over the years, taken a number of steps to curb
financial indiscipline and ensure that banks and
financial institutions are not held to ransom byrecalcitrant borrowers. Among these were the
promulgation of guidelines empowering banks to take
action against defaulting borrowers without having to
resort to judicial enforcement, establishment of the
Debt Recovery Tribunals (DRTs) under the Recovery of
Debts Due to Banks and Financial Institutions Act
1993 (RDB Act), the more recent enactment of the
SARFAESI Act and the proposed establishment of "fast
track" commercial courts pursuant to the Commercial
Division of High Courts Bill 2009 (Commercial Courts
Bill).
Arguably, both the RDB Act and the SARFAESI Act
traverse similar ground but while the DRTs expedited
the adjudicatory process, the dispositive process
remained ineffective because the RDB Act failed to
provide a comprehensive framework for execution of
DRT decrees20. The SARFAESI Act was intended to
address this asymmetry by shortening the
enforcement process but a spate of litigation has
meant that much of this promise remains unfulfilled21.
Foreign sponsors, however, need to take into account
these developments while negotiating INR loan
documentation.
RBI regulations
RBI guidelines now require banks to classify loans in
respect of which interest or any instalment of principal
remains unpaid for over 90 days as NPAs22 and where
the default in payment is "wilful", i.e. the borrower has
the capacity to honour its obligations but fails to do so,
to take action against it23. "Hair trigger" covenantsincrease the risk of a loan being declared an NPA or
the borrower to be a wilful defaulter. The term
"default" as used in the guidelines should, however, be
distinguished from "default" under the loan
documentation. "Default" under the guidelines only
refers to a payment default. Thus, a default under the
guidelines would occur if the lenders demand early
repayment of the loan (i.e. acceleration) as a result of
a default under the loan documentation and no
payment is made.
Where a loan is declared to be an NPA:
banks are required to make provisions for it intheir books;
it cannot be recognised as income unless it isactually received; and
the interest accrued and credited to the incomeaccount in past periods is to be reversed and not to
be treated as income unless realised24.
While there is no express regulatory requirement to
recover NPAs, as a matter of prudent practice and to
comply with the risk ratio / capital adequacy
requirements (which will be affected due to theexistence of NPAs and provisioning requirements),
banks may feel compelled take steps to recover loans
that become NPAs or significantly increasing their
monitoring thereby increasing risks for borrowers.
The consequences for a borrower that is declared to
be a wilful defaulter are more far-reaching. Thus:
banks are mandatorily required to: report wilful defaulters to CIBIL or any similar
agency authorised by the RBI;
take action to recover the loan, which wouldinclude initiation of legal process "against the
borrower/guarantors and foreclosure";
banks may initiate criminal proceedings wherevernecessary;
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no additional facilities can be granted by any bankor financial institution to wilful defaulters;
directors of wilful defaulters are barred fromholding similar positions in companies in which
banks or notified financial institutions have a
significant stake; and
promoters of wilful defaulters are barred frominstitutional finance for floating new ventures for a
period of five years25.
As a matter of practical reality, however, lenders are
unlikely to accelerate for "immaterial" defaults
especially in a project finance context because of the
inefficiencies of the judicial process, although this
could change once the enforcement process under the
SARFAESI Act is strengthened or the commercialcourts envisaged under the Commercial Courts Bill
become functional (please see below).
SARFAESI Act
Once a loan is classified as an NPA in a lender's books
or a borrower is declared a wilful defaulter, the lender
can proceed to recover the loan under the SARFAESI
Act26 by simply issuing a notice to the borrower
requiring it to pay the amount due within 60 days27. If
the borrower fails to make payment within this period,
the lender can:
take possession of the secured assets; take over the management of the business of the
borrower where it is held as security;
appoint a manager of the secured assets whichhave been possessed; or
issue a "garnishee" notice to any person who hasacquired any secured assets from the borrower and
from whom any money is due to the borrower28.
The borrower is entitled to raise objections to the
enforcement of security by the lender and, if it does so,
the lender is required to communicate its decision to
the borrower within one week together with, wherethe lender rejects the borrower's objections, reasons
for its rejection29. The borrower can contest the
enforcement by making an application to the
appropriate DRT30. Decisions of the DRT are
appealable to the Appellate Tribunal if the borrower
deposits 50 per cent of the amount claimed, which the
Appellate Tribunal is empowered to reduce to 25 per
cent31.
The SARFAESI Act cannot be invoked to enforce
(among other things) the following types of security:
liens on any goods, money or security given underany other law;
pledges of movables; security over ships and aircraft;
where the amount secured is less thanINR100,000;
where the amount due is less than 20 per cent ofthe principal amount and interest thereon; and
security over agricultural land32.
Commercial Courts Bill
The lower house of the Indian Parliament passed the
Commercial Courts Bill in its 2009 winter session. The
bill, which is expected to be approved by the upper
house during the monsoon session (2010) of
Parliament, is based on the recommendations of the
188th Report of the Law Commission of India and aims
to expedite the adjudication of high value commercial
disputes33 by establishing dedicated "commercial"
divisions within every High Court on the lines of theCommercial Court of the Queen's Bench Division of the
High Court (of England and Wales). Once these courts
are established, it will be possible to obtain judgment
within one year of the suit being filed as compared to
the 10-15 years at present. This should significantly
mitigate the risk of borrower default for lenders but
borrowers will then need to ensure that the loan
documentation is sufficiently flexible so as to enable
them to conduct their day-to-day operations without
fear of legal action by the lenders.
Conclusion
Although the Indian project finance market continues
to go from strength to strength, INR loan
documentation does not appear to have kept pace
with developments or reflect many international
"norms". There are a number of reasons for this. True
non-recourse / limited recourse lending in India is still
at an embryonic stage and it is not uncommon for
lenders to request and be provided with some form of
sponsor support even where the transaction is
structured as a "project financing". A majority of the
lenders in the Indian project finance market are public
sector institutions that place considerable reliance onprecedent, which often results in an inflexible
approach to negotiations. Difficulties in enforcing
contracts through the courts have also contributed to
a transactional process that is relationship- rather
than documentation-driven. While this may provide
greater flexibility, it increases uncertainty for foreign
sponsors, many of whom will not be familiar with the
intricacies of the lending market and practices in India.
Foreign sponsors have addressed many of these risks
by partnering with Indian companies who have the
financial wherewithal, human resources and localknowledge to effectively manage the transaction
process. It is significant that no foreign sponsor has
"gone it alone" to date but if one does, it will need to
ensure that its advisers are involved from a very early
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stage in the negotiations and have the expertise
necessary to navigate the often complex web of
regulatory, bureaucratic and cultural relationships to
effectively implement and manage the project.
Regulatory developments such as the SARFAESI Act
and the Commercial Courts Bill, however, mean that
the approach to documentation will have to change
because unenforceability risk will be considerably
mitigated, tipping the balance in favour of lenders.
Whether or not reduced risk of borrower default will be
sufficient to dislodge entrenched lender positions on
key issues, however, remains to be seen.
The authors would like to thank DSK Legal for their
assistance in the preparation of this briefing.
Notes:
1 Reuters, 13 January 2010.2 Reuters, 16 September 2009.3 See List of Projects Awarded during 2008-09 and 2009-10,
www.nhai.org.
4 Bangalore, Hyderabad, Mumbai and New Delhi. See ProjectsDatabase, www.ijonline.com.
5 "India Power investments lead the way", Infrastructure Journal,19 March 2010.
6 "Government taking steps to attract FDI in power sector", TheEconomic Times, 25 May 2010.
7 RBI/2009-10/390, DBOD. No Dir BC 88 /13.03.00/2009-10,www.rbi.org.in.
8 India Prime Lending Rates (PLR) of banks, 6 April 2009,http://in.reuters.com.
9 A glance at base rates of all the banks, 1 July 2010,www.moneycontrol.com.
10 Indira Gandhi International Airport PPP, Tata's Mundra Ultra MegaPower Project and Palanpur - Swaropgunj Toll Road PPP. See
Projects Database,www.ijonline.com.
11 For projects that are not in the hospital, hotel or software sectors.For the latter type of project, the limit is US$100m in any financial
year. See RBI Master Circular (No. 08/2010-11) on External
Commercial Borrowings and Trade Credits dated 1 July 2010,
www.rbi.org.in.
12 www.cibil.com.13 RBI Master Circular on Wilful Defaulters dated 1 July 2010,
RBI/2010-11/57, DBOD No. DL.BC. 20 /20.16.003/2010-11
www.rbi.org.in.
14 General Circular No: 8/2002 issued by the Department of CompanyAffairs.www.mca.gov.in.
15 www.ijonline.com.16 See, for example, Art 6 of Schedule 1 to the Bombay Stamp Act
1958.
17 Under Article 246 read with Seventh Schedule, List II, Entry 63 ofthe Constitution of India.
18 Where title to mortgaged property is conveyed to the mortgageesubject to the mortgagor's equity of redemption.
19 See, for example, the observations of the 3rd Circuit Court ofAppeals (New York) in Bhatnagar -v- Surendra Overseas Limited
(1995) 52 F.2.d. 1220 (3rd Cir) and more recently of the New YorkSupreme Court in Modi Enterprises -v- ESPN (2003) and referred to
in the 188th Report of the Law Commission of India available at
www.lawcommissionofindia.nic.in.
20 Mardia Chemicals -v- Union of India, AIR 2004 SC 2371.21 See, for example, ibid.22 RBI Master Circular on Prudential Norms and Asset Classification
dated 1 July 2010, RBI/2010-11/74, DBOD.No.BP.BC.21
/21.04.048/2010-11www.rbi.org.in.
23 RBI Master Circular on Wilful Defaulters, supra.24 RBI Master Circular on Prudential Norms and Asset Classification,
supra.
25 RBI Master Circular on Wilful Defaulters, supra.26 Section 13(1) of the SARFAESI Act.27 Section 13(2) of the SARFAESI Act.28 Section 13(4) of the SARFAESI Act.29 Section 13(3A) of the SARFAESI Act.30 Section 17 of the SARFAESI Act.31 Section 18 of the SARFAESI Act.32 Section 31 of the SARFAESI Act.33 Above INR50m.
http://www.nhai.org/http://www.nhai.org/http://www.nhai.org/http://www.ijonline.com/http://www.ijonline.com/http://www.rbi.org.in/http://www.rbi.org.in/http://in.reuters.com/http://in.reuters.com/http://in.reuters.com/http://www.moneycontrol.com/http://www.moneycontrol.com/http://www.ijonline.com/http://www.ijonline.com/http://www.ijonline.com/http://www.rbi.org.in/http://www.rbi.org.in/http://www.rbi.org.in/http://www.cibil.com/http://www.cibil.com/http://www.rbi.org.in/http://www.rbi.org.in/http://www.rbi.org.in/http://www.mca.gov.in/http://www.mca.gov.in/http://www.mca.gov.in/http://www.mca.gov.in/http://www.ijonline.com/http://www.ijonline.com/http://www.lawcommissionofindia.nic.in/http://www.rbi.org.in/http://www.rbi.org.in/http://www.rbi.org.in/http://in.reuters.com/http://www.rbi.org.in/http://www.lawcommissionofindia.nic.in/http://www.ijonline.com/http://www.mca.gov.in/http://www.rbi.org.in/http://www.cibil.com/http://www.rbi.org.in/http://www.ijonline.com/http://www.moneycontrol.com/http://www.rbi.org.in/http://www.ijonline.com/http://www.nhai.org/8/3/2019 481860
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Ashurst and India
Ashurst has had a very long historic association with India and was a pioneer among the international law firmswhen we first set up a licensed office in India in 1994.
Ashurst has been very active in the Indian market since the first phase of deregulation and liberalisation, and our
India practice group has developed invaluable experience over the past 16 years in dealing with and obtaining
information from the government and regulatory agencies and liaising with local lawyers and other offices and
parties in India. Due to local restrictions on legal service, our Indian lawyers are based in our offices outside of
India.
Key features of our India group include:
A dedicated and coordinated India practice group across Europe, the Middle East and Asia comprising over 50English and Indian qualified lawyers.
A strong track record of successfully concluded deals in India, particularly in the infrastructure sector. The ability to advise on strategy and policy in India, based on the extensive knowledge and experience of
members of the group.
A detailed understanding within the group of the legal, business and political scene in India that is ofrelevance and interest to our clients.
Experience in working with Indian law firms in a seamless fashion.
For more detail on Ashurst's experience in India or on our India group, please speak to any of the contacts listed
below or clickhere.
India group contacts
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