Income-Tax Officer, Award, Sitapur Vs.
Murlitdhar Bhagwandas, Lakhimpur Kheri [1964] INSC 19 (29 January 1964)
29/01/1964 SUBBARAO, K.
SUBBARAO, K.
SINHA, BHUVNESHWAR P.(CJ) DAYAL, RAGHUBAR
AYYANGAR, N. RAJAGOPALA MUDHOLKAR, J.R.
CITATION: 1965 AIR 342 1964 SCR (6) 411
CITATOR INFO:
F 1968 SC 139 (2) F 1969 SC 340 (1,2) RF 1970
SC 486 (3) RF 1971 SC 147 (14,15) R 1972 SC 83 (12) F 1973 SC2359 (5,7) F 1973
SC2434 (7) R 1973 SC2585 (13) E 1979 SC1933 (11,12) F 1980 SC 98 (14) RF 1981
SC1759 (23) E 1984 SC 993 (12,14,15,16,19,20,21,26,27)
ACT:
Income Tax-Assessment or reassessment made
under order or direction from higher authority must relate to the assessment of
the year under review-Meaning of "finding", "direction" and
"any person"--Decision of Income-tax officer for a particular year
not res judicata for subsequent yearIndian Income-tax Act, 1922 (11 of 1922),
s. 34(3), provisoMeaning and scope of.
HEADNOTE:
The respondent was a firm carrying on
business in different lines. It was assessed to income-tax under s. 23(4) of
the Income-tax Act, 1922 for the assessment year 1949-50 on the ground that
notices issued under s. 22(2) and (4) had not been complied with. Later on,
that assessment 412 was cancelled. However, before the cancellation, it was
found that an interest income of Rs. 88,737 in the shape of U.P. Encumbered
Estates Act Bonds received by the respondent from third parties had escaped
assessment as the assessee failed to disclose the same. The Income-tax Officer
issued a notice for the assessment year 1949-50 on the ground that a sum of Rs.
88,737 had escaped assessment in the said assessment year. After the
cancellation of the assessment made under s. 23(4), the Income-tax officer,
ignoring the notice issued by him under s. 34(1)(a), included that amount in
the fresh assessment made by him for the year 1949-50.The respondent appealed
to the Appellate Assistant Commissioner who ordered the deletion of the sum of
Rs. 88,737 from the assessment for the year 1949-50 and directed the same to be
included in the assesment for the year ending 1948-49.
Pursuant to the direction given, the
Income-tax Officer served a notice on the respondent under s. 34(1). Against
that notice the assessee filed a writ petition in the High Court for quashing
the above-mentioned proceeding on the ground that these were initiated beyond
the time prescribed by a. 34. The High Court accepted the petition and quashed
the notice on the ground that it was issued by the appellant beyond the
ordinary period of limitation It also overruled the contention of the appellant
that no period of limitation governed the notice in as much as the second
proviso to s. 34(3) was attracted to the facts of the case. The only direction
which the Appellate Assistant Commissioner could give was one which was covered
by s. 31 of the Act and as the appeal before him was confined to a particular
assessment year, the direction must necessarily be limited to a matter falling
within that year. if the direction be treated as based on a finding recorded by
Appellate Assistant Commissioner, that finding would have to be disregarded
when applying the proviso. The appellant came to this Court by special leave.
Held: (per B. P. Sinha, C.J., K. Subba Rao
and N. Rajagopala Ayyangar JJ.). The proviso to sub-s. (3) of s. 34 of the
Indian Incometax Act, 1922 does not save the time limit prescribed under sub-s.
(1) of s. 34 in respect of an escaped assessment of a year other than that
which is the subject matter of appeal or revision as the case may be and hence
the notice under s. 34(1)(a) issued in the present case was clearly barred by
time.
The jurisdiction of the High Court or the
Supreme Court under s. 66 or s. 66(b) is a limited one and is confined only to
the questions referred to them. Moreover, the questions referred by Tribunal
cannot exceed its jurisdiction. Therefore the assessment or reassessment made
under the said sections or Pursuant to the orders or directions made thereunder
must necessarily relate to the assessment of the year under review, revision or
appeal as the case may be. 'Me proviso to sub-s. (3) of s. 34 does not confer
any fresh power upon the Income-tax Officer to make assessment in respect of
the escaped incomes without any time limit. It only lifts the ban of limitation
in respect of certain assessments made under certain provisions of the Act and
the lifting of the ban cannot be so construed as to increase the jurisdiction
of the tribunal Under the 413 relevant sections. The lifting of the ban was
only to give effect to the orders that may be made by the appellate, revisional
or reviewing Tribunal within the scope of its jurisdiction. If the intention
was to remove the period of limitation in respect of any assessment against any
person, the proviso would not have been added as proviso to sub-s. (3) which
deals with completion of an assessment but would have been added to sub-s. (1)
of s. 34.
The word 'finding' covers only the material
questions which arise in a particular case for decision by the authority
hearing the. case or the appeal which, being necessary for passing the final
order or giving the final decision in the appeal, has been the subject of
controversy between the interested parties or on which the parties concerned
have been given a hearing. The expression 'direction' refers to a direction
which the appellate or revisional authority is empowered to give under the law.
The expression "any person" must be confined to a person intimately
connected with the assessment of the year under appeal or revision.
Held: per Raghubar Dayal and J. R. Mudholkar
JJ.
(dissenting): That the notice was not in
contravention of the provisions of s. 34 and hence could not be quashed on that
ground. When an appeal is before an appellate authority, the whole matter is at
large before it and therefore when a specific case is put before it by an
assessee, it has both the power as well as the duty to give its finding
thereon. The ground given by an assessee for claiming a reduction or annulment
of assessment may be that the income upon which he had been assessed was not
earned in the accounting period of the year to which the assessment pertained
but in respect of a specified earlier or later year. The appellate authority is
entitled to go into the whole question and come to a finding one way or the
other.
The finding of a tribunal is its conclusion
on a point agitated before it and for a conclusion to amount to a finding, it
is not necessary that it should be the final and ultimate conclusion.
The contention of respondent that the second
proviso to a. 34(3) enabling a notice to issue only to assessee in respect of
escaped income without limit of time on the ground that the appellate authority
has made a finding or direction in the proceeding before it makes a
discrimination against such assessee because it does not lift the bar of
limitation with regard to other assessees similarly situated but with regard to
whom no finding has been made or direction given by appellate authority, was
rejected. It was held that prima facie, there was a reasonable basis for the
classification.
The ground on which classification was made
had a rational relationship with the object which was intended to be achieved
by law, i.e., to detect and bring to assessment the escaped income.
Commissioner of Income-tax v. S. M.
Chitnavis, (1932) L.R. 59 I.A. 290, Sir Kikabhai Premchand v. Commissioner of
Income-tax (Central), Bombay, [1954] S.C.R. 219. pt. Hazart Lal v. Income-tax
Officer, Kanpur. (1960) 39 LT.R 26S.
Lakshman Prakash v. Commissioner of Income414
tax, U.P., (1963) 48 I.L R 705, A. S. Khader Ismail v.
Income-tax Officer, Salem, (1963)48 I.T.R.
16, Simrathmul v. Additional Income-tax Officer, Ootachamund, (1959)36 I.T.R. 41,
Brindaban Chandra Basak v. Incometax Officer, (1962) 46 I.T.R. 14, K. C. Thomas,
First Income-tax Officer. Bombay v. Vasant Hira Lal Shah [1964] 6 S.C.R. 431,
Prashar & Anr. V. Sasantsen Dwarkadas 49 I.T.R. (S.C.) 1, Kamlapat Hotilal
v.Income-tax Officer, 29 I.T.R. 192, Hiralal Amrit Lal Shah v. K. C. Thomas,
Income-tax Officer, Bombay, 34 I.T.R. 446, General Construction and Supply Co.
v. Income-tax Officer (8th) C Ward, Bombay, 44 I.T.R. 16, Suraj Mal Mohata
& Co.
v. A. V. Visvanatha Sastri [1955] 1 S.C.R.
448, A. Thangal Kunju Mudaliar v. M. Venkatachalam Potti & Anr. [1955] 2
S.C.R. 1196 and Palaji v. Income-tax Officer, Special Investigation Circle
[1962] 2 S.C.R. 983, referred to.
CIVIL APPELLATE JURISDICTION: Civil Appeal
No. 130 of 1962.
Appeal by special leave from the Judgment and
decree dated March 17, 1959, of the Allahabad High Court in Misc. Writ Petition
No. 280 of 1958.
K. N. Rajagopal Sastri and R. N. Sachthey,
for the appellant Bishan Narain, G. C. Sharma, O.C. Mathur, J. B.
Dadachanji and Ravinder Narain, for the
respondent.
A. V. Vishwanatha Sastri, D. N. Mukherjee and
B. N. Ghosh, for the intervener.
January 29, 1964. 'Me Judgment of B. P. Sinha
C.J., K.Subba Rao and N. Rajagopala Ayyangar JJ., was delivered by Subba Rao J.
The dissenting opinion of Raghubar Dayal and Mudholkar JJ., was delivered by
Mudholkar J.
SUBBA RAo J.-This appeal by special leave
raises the question of the construction of the proviso to sub-s. (3) of s. 34
of the Indian Income-tax Act, 1922, as amended by Act 25 of 1933, hereinafter
called the Act.
The facts lie in a small compass and they are
as follows:
The respondent is a firm carrying on business
in different lines. It was assessed to income-tax under s. 23 (4) of the Act
for the assessment year 1949-50 on the ground that the notice issued under
sub-ss. (2) and (4) of s. 22 of the Act had not been complied with. On
September 27, 1955, the said assessment was cancelled under s. 27 of the Act.
But before the said cancellation, it was found that an interest income of Rs.
88,737 in the shape of U.P. Encumbered Estates Act Bonds received by him in
discharge of 415 the debts due from third parties had escaped assessment as the
assessee failed to disclose the same. The Income-tax Officer issued a notice
under s. 34 (1) (a) of the Act for the assessment year 1949-50 on the ground
that the said sum of Rs. 88,737 had escaped assessment in the said assessment
year. After the assessment of that year was set aside under s. 27 of the Act,
the Income-tax Officer, ignoring the notice issued by him under s. 34 (1)(a) of
the Act, included that amount in the fresh assessment made by him. The assessee
preferred an appeal against that order and that was disposed of by the
Appellate Assistant Commissioner on December 4, 1957. The Appellate Assistant
Commissioner in his order held that the bonds were received by the assessee in
the previous accounting year and, therefore, directed that the sum representing
interest on the bonds should be, deleted from the assessment for the year
ending 1949-50 and included in the --assessment for the year ending 1948-49.
pursuant to the direction given by the
Appellate Assistant Commissioner the Income-tax Officer initiated proceedings
under s. 34(1) of the Act in respect of the assessment year 1948-49. The notice
issued under that section was served on the respondent on December 5, 1957. The
assessee filed a petition under Art. 226 of the Constitution in the High Court
of Judicature at Allahabad for quashing the said proceedings, mainly on the
ground that the proceedings were initiated beyond the time prescribed by s. 34
of the Act.
The High Court accepted the contention and
quashed the proceedings initiated by the Income-tax Officer. Hence the appeal.
The proceedings would be in time, if the
second proviso to s. 34(3) of the Act could be invoked. The question, therefore,
is what is the true meaning of the terms of the second proviso to s. 34(3) of
the Act,. It reads:
"Provided further that nothing in this
section limiting the time within which any action may be taken, or any order,
assessment or reassessment may be made, shall apply to a reassessment made
under s. 27 or to an assessment or re-assessment made on the assessee or any
person in consequence of or to give effect to any 416 finding or direction
contained in an order under S. 31, s. 33, s. 33A, s. 33B. s. 66 or s.
66A." Prima facie this proviso lifts the ban of limitation imposed by the
other provisions of the section in the matter of taking an action in respect of
or making an order of assessment or re-assessment falling within the scope of
the said proviso. The scope of the proviso is confined to an assessment or
re-assessment made on the assessee or any person in consequence of an order to
give effect to any finding or direction contained in any order made under s. 31
i.e., in an appeal before the Assistant Appellate Commissioner, under s. 33
i.e., in an appeal before the Tribunal, under s. 33A i.e., in a revision before
the Commissioner, under s. 33B i.e.. in a revision before the Commissioner
against an order of the Income-tax Officer, and under ss. 66 and 66A i.e., in a
reference to the High Court and appeal against the High Court's order to the
Supreme Court. Learned counsel for the appellant contends that the scope of the
proviso is only confined to the assessment of the year that is the subject
matter of the appeal or the revision, as the case may be. Learned counsel for
the Department argues that the comprehensive phraseology used in the proviso
takes in its broad sweep any finding given by the appropriate authority
necessary for the disposal of the appeal or the revision, as the case may be,
and to any direction given by the said authority to effectuate its finding and
that the said finding or direction may be in respect of any year or any person.
As the phraseology used in the proviso is not clear or unambiguous, the
question raised cannot be satisfactorily resolved without having a precise
appreciation of a brief history of s. 34 of the Act culminating in the
enactment of the proviso in the present form.
Under s. 3 of the Act, income-tax for any
year shall be charged in respect of the total income of the previous year of
every assessee. Notice under s. 22 calling for return of income is the first
step in the assessment proceedings. Two types of notices are mentioned in that
section, namely, (i) the public notice and (ii) the individual notice. 'Me
public notice shall be, issued on or before the 1st May of each year and the
individual notice may be issued at any 417 time in the course of the assessment
year. Income-tax proceedings, therefore, for a particular assessment year have
to be initiated in the course of that year. But there may be cases of escaped
assessment or under-assessment.
Section 34 empowers the Income-tax Officer to
take proceedings under that section both in respect of concealed income and
also in bona fide cases where the income has escaped assessment or full
assessment. Section 34(1) (a) provides for the initiation of assessment
proceedings in respect of concealed income and s. 34(1) (b) for other escaped
income, Section 34(1) has been amended from time to time. Under the said
section, as it originally stood, the Income-tax Officer was empowered to
initiate proceedings at any time within one year of the end of the year in
respect whereof the income escaped assessment. By Act 7 of 1939 that section
was amended and eight years' limitation from the end of the year was prescribed
in respect of concealed income and a limitation of four years for other escaped
income. Under Act 48 of 1948, the same periods of limitation were retained, but
certain conditions were imposed. By the Finance Act of 1956, it was enacted
that in the case of concealed income the proceedings could be initiated at any
time within 4 years of the end of the relevant assessment year. Though no
period of limitation was prescribed in respect of concealed income, three
conditions were imposed, namely, (i) that an Income-tax Officer shall not issue
a notice for any year prior to the year ending on March 31, 1941, (ii) that if
the escaped income was less than rupees one lakh, he shall not issue a notice
if 8 years have elapsed after the expiry of the relevant assessment year, and
(iii) that unless he has recorded his reasons and unless the Central Board of
Revenue in any case falling under cl. (2) of the proviso and in any other case,
the Commissioner, is satisfied that for such reasons as recorded it is a fit
case for the issue of a notice.
Before 1939, there was no period of
limitation for completing the assessment once it had been initiated within the
prescribed period of limitation. But Act 7 of 1939 for the first time
introduced cl. (2) in s. 34 where under "no order of assessment under s.
23 or of assessment or re-assessment under sub-section (1) of this section
shall be made after the 134-159 S. C. 27 418 expiry, in any case to which (c)
of sub-section (1) of section 28 applies, of eight years, and in any other
case, of four years from the end of the year in which the income, profits or
gains were first assessable". Section 28 (1) (c) dealt with a case of an
assessee concealing the particulars of his income or deliberately furnishing
inaccurate particulars of his income. Act 23 of 1941 inserted a proviso in s.
34(2) providing that "nothing contained in this sub-section shall apply to
a re-assessment made in pursuance of an order under section 31, section 33,
section 66 or section 66-A", i.e., provisions relating to appeals,
revisions and references: that is to say, if the assessment made by the
Income-tax Officer was set aside and a reassessment was directed to be made, the
said periods of limitation would not apply to such reassessment. Act 48 of 1948
introduced sub-s. (3) in s. 34 in substitution of subs. (2) thereof. Under that
sub-section the period of limitation prescribed by sub-s. (2) was retained, and
the proviso to s. 34(2) before the amendment was made the second. proviso, with
some modifications, to the amended sub-s. (3). While the scope of the previous
proviso was confined only to the completion of re-assessment proceedings, the
scope of the amended proviso is much wider in that it exempts the
subject-matter of that proviso from the operation, of the period of limitation
prescribed by the section; that is to say, it gives full scope to the operation
of the substantive part of the section unhampered by the periods of limitation
prescribed by sub-ss. (1), (2) and (3) of s. 34 of the Act. While the previous
proviso lifted the ban only in regard to the period of limitation prescribed
for the completion of the assessment, the new proviso lifted the ban even in
respect of the initiation of proceedings under s. 34 (1) of the Act. It follows
that if a matter fell within the terms of the proviso, there would be no period
of limitation for initiating an action or making an assessment or reassessment
in respect of that matter. Briefly stated, the said proviso is a proviso to the
entire s. 34. We shall consider the scope of the proviso at a later stage of
our judgment. Then came the Finance Act of 1956. It amended s. 34 (1) and
introduced a proviso to the said sub-section, which we have noticed earlier.
That proviso, while removing the period of limitation in respect of concealed
income, imposed 419 some conditions in respect thereof, but the four--year
period of limitation in respect of other escaped income was retained. We are
not concerned in this appeal with the subsequent amendments.
The history of the section gives us the
following background to the proviso under consideration. Broadly stated, under
s. 34, as it existed in 1956, (i) there was no time limit for initiating
proceedings under s. 34(1) in respect of concealed income, but such initiation
could be made only subject to the conditions laid down in the proviso to s.
34(i);
(ii) in the case of other escaped income, the
proceedings could not be initiated after the expiry of 4 years from the end of
the relevant assessment year; (iii) the assessment proceedings once commenced
shall be completed within the period of limitation prescribed under s. 34(3);
and (iv) to a case to which the proviso to s. 34(3) applies, there is no period
of limitation either for initiating the proceedings under s. 34 or for
completing the assessment commenced either under s. 23 or under s. 34(1).
With this background let us give a closer
look to the relevant terms of the proviso. The first part of the proviso
released the operation of the proviso from the restriction imposed by s. 34
only in respect of the timelimit within which any action may be taken or any
order of assessment or re-assessment may by made. It means that the proviso continues
to be subject to the other restrictions imposed under the section and it cannot
override the said provisions in that regard. Under the proviso, the period of
limitation will not apply to a re-assessment made under s. 27 or to an
assessment or re-assessment made on the assessee or any person in consequence
of or to give effect to any finding or direction contained in an order under s.
31, s. 33, s. 33B, s. 66 or s. 66A of the Act. It was not contended, nor was it
possible to contend, that by reason of the reference to the said provisions the
powers and jurisdiction conferred on the respective. authorities, tribunals or
courts referred to therein were enlarged or modified by a' reference in the
proviso or that the proviso could be read or construed as amending those
sections conferring on those bodies wider or different powers or jurisdiction.
Learned counsel for the department expressly disclaimed any such submission.
Therefore, the scope of the proviso cannot ordinarily exceed the scope of the
jurisdiction conferred on an authority under the said provisions. It is not,
and cannot be, disputed that under the Income-Lax Act, year is the unit of
assessment. The Judicial Committee in Commissioner of Income-tax v. S. M. Chitnavis(1)
pointed out :
"For the purpose of computing the yearly
profits and gains, each year is a separate self-contained period, time, in
regard to which profits earned or losses sustained before its commencement are
irrelevant." This Court in Sir Kikabhai Premchand v. Commissioner of
Income-tax (Central), Bombay(1) accepted this legal position when it said:
".......... for income-tax purposes,
each year is a self-contained accounting period and we can only take into
consideration income, profits and gains made in that year and are not concerned
with potential profits which may be made in. another year any -more than we are
with losses which may occur in the future." Indeed, the decision of an
Income-tax Officer given in a particular year does not operate as res judicata
in the matter of assessment of the subsequent years. The jurisdiction of the
tribunals in the hierarchy created by the Act is no higher than that of the
Income-tax Officer.
It is also confined to the year of
assessment. Under s. 27 of the Act, the Incometax Officer cancels the
best-judgment assessments made by him if the assessee shows that he was
prevented by sufficient cause from making the returns under s. 22 of the Act.
Section 31 prescribes the mode of disposal by an Assistant Appellate
Commissioner of an appeal preferred to him: the appeal before him is certainly
confined to an assessment year; after hearing the appeal, he can either
confirm, reduce, enhance or annul the assessment;
he can set aside the (1)(1932) L. R. 59 I. A.
290. 297.
(2) [1954] S. C. R. 219, 222.
421 assessment and direct the Income-tax
Officer to make a fresh assessment. The various sub-sections of that section
describe in detail the orders or directions that can be made or issued by him
in respect of various matters; but, no power is conferred on him to make an
order or issue directions in respect of an assessment of a year which was not
the subject-matter of the appeal. It may, therefore, be held on a construction
of the provisions of s. 31, that the jurisdiction of the Appellate Assistant Commissioner
is strictly confined to the assessment orders of a particular year under
appeal. Section 33, inter alia, deals with an appeal to the Tribunal against
the order of the Appellate Assistant Commissioner under s. 31; and s. 33B
confers power of revision on the Commissioner against an order of the
Income-tax Officer. The jurisdiction of the Appellate Tribunal or the
Revisional Tribunal, as the provisions indicate, is confined only to the
subject-matter which is under appeal or revision. The jurisdiction of the High
Court or the Supreme Court under s. 66 or s. 66B, as the case may be, is far
more limited and it is confined only to the questions referred to them.
Obviously the questions referred by the Tribunal cannot exceed its
jurisdiction. It is, therefore, manifest that assessment or re-assessment made
under the said sections or pursuant to the orders or directions made thereu nder
must necessarily relate to the assessment of the year under review, revision or
appeal, as the case may be. It is important to remember that the proviso does
not confer any fresh power upon the Income-tax Officer to make assessments in
respect of escaped incomes without any time-limit. It only lifts the ban of
limitation in respect of certain assessments made under certain provisions of
the Act and the lifting of the ban cannot be so construed as to increase the
jurisdiction of the Tribunals under the relevant sections. The lifting of the
ban was only to give effect to the orders that may be made by the appellate,
revisional or reviewing tribunal within the scope of its jurisdiction. If the
intention was to remove the period of limitation in respect of any assessment
against any person, the proviso would not have been added as a proviso to
sub-s. (3) of s. 34, which deals with completion of an assessment, but would
have been added to sub-s. (1) thereof.
422 Now, let us scrutinize the expressions on
which strong reliance is placed for the contrary conclusion. The words relied
upon are "section limiting the time", ",any person", "in
consequence of or to give effect to any finding or direction". Pointing
out that before the amendment the word "subsection was in the proviso but
it was replaced by the expression "section", it is contended that
this particular amendment will be otiose if it is confined to the assessment
year under appeal, for it is said that under no circumstances the Income-tax
Officer would have to initiate proceedings for the said year pursuant to an
order made by an Appellate Assistant Commissioner. This contention is obviously
untenable. The Appellate Assistant Commissioner or the Appellate Tribunal may
set aside the notice itself for one reason or other and in that event the
Income-tax Officer may have to initiate the proceedings once again in which
case s. 34(1) will be attracted. The expression "finding or
direction", the argument proceeds, is wide enough to take in at any rate a
finding that is necessary to dispose of the appeal or directions which
Appellate Assistant Commissioners have in practice been issuing in respect of
assessments of the years other than those before them in appeal. What does the
expression "finding" in the proviso to sub-s. (3) of s. 34 of the Act
mean? "Finding" has not been defined in the Income-tax Act. Order XX,
r. 5 of the Code of Civil Procedure reads:
"In suits in which issues have been
framed, the Court shall state its finding or decision, with the reasons
therefor, upon each separate issue, unless the finding upon any one or more of
the issues is sufficient for the decision of the suit." Under this Order,
a "finding" is, therefore, a decision on an issue framed in a suit.
The second part of the rule shows that such a finding shall be one which by its
own force or in combination with findings on other issues should lead to the
decision of the suit itself. That is to say, the finding shall be one which is
necessary for the disposal of the suit. The scope of the meaning of the
expression "finding" is considered by a Division Bench of the
Allahabad High Court in 423 Pt. Hazari Lal v. Income-tax Officer, Kanpur(1)
There, the learned Judges pointed out:
"The word "finding', interpreted in
the sense indicated by us above, will only cover material questions which arise
in a particular case for decision by the authority hearing the case or the
appeal which, being necessary for passing the final order or giving the, final
decision in the appeal, has been the subject of controversy between the
interested parties or on which the parties concerned have been given a
hearing." We agree with this definition of "finding". But a Full
Bench of the same High Court in Lakshman Prakash v. Commissioner of Income-tax,
U.P. (2) construed the word "finding" in a rather comprehensive way.
Desai, C.J., speaking for the Court, observed:
"A finding is nothing but what one finds
or decides and a decision on a question even though not absolutely necessary or
not called for is a finding." If that be the correct meaning, any finding
on an irrelevant or extraneous matter would be a finding. That certainly cannot
be the intention of the Legislature. The Madras High Court also in A. S. Khader
Ismail v. Income-tax Officer, Salem(3) gave a very wide interpretation to that
word, though it did not go so far as the Full Bench of the Allahabad High
Court. Ramachandra Iyer J., as he then was, speaking for the Court, observed
that the word "finding" in the proviso must be given a wide
significance so as to include not only findings necessary for the disposal of
the appeal but also findings which were incidental to it. With respect, this
interpretation also is inconsistent with the well-known meaning of that
expression in the legal terminology. Indeed, learned counsel for the respondent
himself will not go so far, for he concedes that the expression
"finding" cannot be (1) (196O) 39 I. T. R. 265, 272 (2) (1963) 48 I.
T. R. 705, 718. (3) (1963) 48 I.T.R. 16.
424 any incidental finding, but says that it
must be a conclusion on a material question necessary for the disposal of the
appeal, though it need not necessarily conclude the appeal. This concession
does not materially differ from the definition we have given, but the
difference lies in the application of that definition to the finding given in
the present case. A "finding", therefore, can be only that which is
necessary for the disposal of an appeal in respect of an assessment of a
particular year. The Appellate Assistant Commissioner may hold, on the
evidence, that the income shown by the assessee is not the income for the
relevant year and thereby exclude that income from the assessment of the year
under appeal. The finding in that context is that that income does not belong
to the relevant year. He may incidentally find that the income belongs to
another year, but that is not a finding necessary for the disposal of an appeal
in respect of the year of assessment in question. The expression
"direction" cannot be construed in vacuum, but must be collated to
the directions which the Appellate Assistant Commissioner can give under s. 31.
Under that section he can give directions,
inter alia, under s. 31 (3) (b), (c) or (e) or s. 31 (4). The expression
"directions" in the proviso could only refer to the directions which
the Appellate Assistant Commissioner or other tribunals can issue under the
powers conferred on him or them under the respective sections. Therefore, the
expression "finding" as well as the expression "direction"
can be given full meaning, namely, that the finding is a finding necessary for
giving relief in respect of the assessment of the year in question and the direction
is a direction which the appellate or revisional authority, as the case may be,
is, empowered to give under the sections mentioned therein.
The words "in consequence of or to give
effect to" do not create any difficulty, for they have to be collated
with, and cannot enlarge, the scope of the finding or direction under the
proviso. If the scope is limited as aforesaid, the said words also must be
related to the scope of the findings and directions.
The words "any person', it is said,
conclude the matter in favour of the Department. The expression "any
person"in its widest connotation may take in any person whether connected
or not with the assessee, whose income for any 425 year has escaped assessment;
but this construction cannot be accepted, for the said expression is
necessarily Circumscribed by the scope of the subject-matter of the appeal or
revision, as the case may be. That is to say, that person must be one who would
be liable to be assessed for the whole or a part of the income that went into
the assesment of the year under appeal or revision. If so construed, we must
turn to s. 31 to ascertain who is that person other than the appealing assessee
who can be liable to be assessed for the income of the said assessment year.
A combined eading of s. 30(1) and s. 31(3) of
the Act indicates the cases where persons other than the appealing assessees
might be affected by orders passed by the Appellate Commissioner. Modification
or setting aside of assessment made on a firm, joint Hindu family, association
of persons, for a particular year may affect the assessment for the said year
on a partner or partners of the firm, member or members of the Hindu undivided
family or the individual, as the case may be. lit such cases though the latter
are not so nomine parties to the appeal, their assessments depend upon the
assessments on the former. The said instances are only illustrative. It is not
necessary to pursue the matter further. We would, therefore, hold that the
expression "any person" in the setting in which it appears must be
confined to a person intimately connected in the aforesaid sense with the
assessment of the year under appeal.
We shall now briefly touch upon the conflict
of decisions on the question. The Full Bench of the Allahabad' High Court in
Lakshman Prakash's case(1) overruled the decision of the Division Bench in Pt.
Hazari Lal's case (2). A Division Bench of the Madras High Court consisting of
Rajagopalan and Balakrishna Ayyar JJ., in Simrathmull v. Additional Incometax
Officer, Ootacamund(3), took the same view as the Full Bench of the Allahabad
High Court in Lakshman Prakash's case(4). But a Division Bench of the Calcutta
High Court, consisting of Bose C.J., and Mookerjee J., in Brindaban Chandra
Basak v. Income-tax Officer(4), though it had not finally expressed any opinion
(1) [1963] 48 I.T.R. 705, 718.
(2) [1960] 39 I.T.R. 265, 272.
(3) (1959) 36 I. T. R. 41.
(4) (1962) 46 I. T. R. 14.
426 on that, was inclined to accept the view
expressed by the Division Bench of the Allahabad High Court in Pt. Hazari Lal's
case(1). We have gone through the decisions carefully. For the reasons given by
us, we agree with the view expressed by the Division Bench of the Allahabad
High Court in Pt. Hazari Lal's case(2) on the interpretation of the proviso to
sub-s. (3) of s. 34 of the Act.
In the result, we hold that the said
provision would not save the time-limit prescribed under sub-s' (1) of s. 34 of
the Act in respect of an escaped assessment of a year other than that which is
the subject-matter of the appeal or the revision, as the case may be. It
follows that the notice under s. 34(1) (a) of the Act issued in the present
case was clearly barred by limitation.
In this view no other question arises for our
consideration.
In the result, the appeal fails and is
dismissed with costs.
MUDHOLKAR J.-This is an appeal by special
leave from the judgment of the Allahabad High Court in the writ petition under
Art. 226 of the Constitution quashing a notice under s. 34(1) of the Indian
Income-tax Act, 1922 issued by the appellant, Income-tax Officer, A Ward
Sitapur on December 5, 1957 against respondent No. 4.
The relevant facts are briefly these:
For the assessment year 1949-50,
correspondiria to Samvat year 2005, the appellant made an ex-parte assessment
under s. 23(4) of the Act on November 13, 1953 which he later set aside under
s. 27 of the Act. Before that he had issued a notice to the respondent firm
under s. 314(1) (a) of the Act in respect of the same assessment year on the
ground that a sum of Rs. 88,737 representing interest alleged to have been
earned by the firm during that year had escaped assessment in the assessment
made under s. 23(14). After, however, fresh proceedings were taken under s. 23
(3) by the appellant consequent upon his order under s. 27, he proceeded to
include in the assessment a sum of Rs. 88,737 which was alleged to have escaped
assessment in the notice earlier issued under s. 34(1) (a) and made an
assessment (1) (1963)48I.T.R.705,718.
427 order on January 31, 1957. Against this
order the respondent preferred an appeal before the Appellate Assistant
Commissioner in which he urged two main grounds and the one accepted by the
Appellate Assistant Commissioner was that the aforesaid amount of interest was
received by the firm in the accounting period of the previous assessment year
and not in that of the assessment year 1949-50. Upon this view, the Appellate
Assistant Commissioner reduced the assessment and observed as follows in his
order :
"I, therefore, hold that the amount in
dispute should be deleted from the assessment for 1949-50 and that, instead,
the Income-tax Officer should take steps to assess the wnount for the
assessment year 1948-49." Treating this as a direction or finding of the
Appellate Authority, the appellant issued the impugned notice dated December 5,
1957 under s. 34(1) (a). The respondent immediately moved the High Court for
quashing the aforesaid notice. The High Court quashed the notice on the ground
that it was issued by the appellant beyond the ordinary period of limitation,
overruling the appellant's contention that no period of limitation governed the
notice inasmuch as the second proviso to s. 34(3) of the Act was attracted to
the facts of the case. The High Court in doing so purported to follow its own
decision in Pt. Hazari Lal v. The Income-tax Officer, Disti. II, Kanpur(1).
Briefly stated, the view taken by the High Court is that the only direction
which the Appellate Assistant Commissioner can competently give is one which is
covered by s. 31 of the Act and that since the appeal before him was confined
to a particular assessment year, the direction must also be necessarily limited
to a matter falling within that year.
The High Court further held that if the
direction be treated as based on a finding recorded by the Appellate Assistant
Commissioner, that finding will have to be disregarded when applying the
proviso. The correctness of the view taken by the High Court is challenged
before us on behalf of the appellant.
(1) Civil Misc. Writ. 2227 of 1956.
428 The relevant part of s. 34(3) and the
second proviso thereto run thus:
"No order of assessment or reassessment,
other than an order of assessment under s. 23 to which clause (c) of
sub-section (1) of section 28 applies or an order of assessment or reassessment
in cases falling within clause (a) of subsection (1) or sub-section (1A) of
this section shall be made after the expiry of four years from the end of the
year in which the income, profits or gains were first assessable:
Provided further that nothing contained in
this section limiting the time within which any action may be taken or any
order, assessment or reassessment may be made shall apply to a reassessment
made under section 27 or to an assessment or reassessment made on the assessee
or any person in consequence of or to give effect to any finding or direction
contained in an order under section 31, section 33, section 33A, section 33B,
section 66 or section 66A." This is how the provision stands as from April
1, 1956 and it is not disputed before us that it is the amended provision which
would apply to the present case. What is, however, contended on behalf of the
respondent is that the only issue before an Income-tax Officer in every case
being the assessment for a particular year and no other year, the direction or
finding contemplated by the second proviso which the Appellate Authority could
make must necessarily be limited to that year alone. The alternative contention
is that if the second proviso is so construed as to permit of a direction or
finding being made with respect to any other year, it is ultra vires being
violative of Art. 14 of the Constitution. It was further contended that since
the amount in this case is below one lakh of rupees, the second proviso will not
apply.
As regards the last point we may advert to
our judgment delivered today in K. C. Thomas, First Income-tax Officer, Bombay
v. Vasant Hiralal Shah(1) in which we have (1) [1964] 6 S.C.R. 437.
429 negatived a similar contention. For the
reasons given there, we reject the argument of learned counsel for the
respondent.
Coming to the first contention of the
respondent, it is no doubt true that the whole scheme of the Income-tax Act is
to confine the assessment pursuant to the notice given under s. 22 to a
particular year and particular year alone and in the proceeding before him he
is bound to confine himself to the income of that year. If income in previous
years has escaped assessment, he has no power to bring it to assessment along
with the income of a subsequent year. The only power which he has for bringing
such income to assessment is to resort to the provisions of s. 34(1) and issue
a separate notice with respect to it to the assessee and the Appellate
Assistant Commissioner of Income-tax hearing an appeal from an order of
assessment made by the Income-tax Officer is in no better position in this
matter than the Income-tax Officer. All that is perfectly true.
But the question which we have to consider is
whether the wide language employed by the legislature in enacting the second
proviso should not be given its natural meaning.
This proviso removes the bar of limitation
enacted by s. 34(1) and its first two provisos not only with respect to the
assessee but with respect to "any person" in certain circumstances.
No doubt, this Court has recently held in S. C. Prashar & Anr. v. Vasantsen
Dwarkadas & ors.(1) that the proviso in so far as it removes the bar of
limitation with respect to persons other than the assessee, is invalid as it
infringes the provisions of Art. 14 of the Constitution.
That, however, is a question apart. What we
have to consider is the legislative intent, and for ascertaining it, it is
legitimate to look also at that part of the enactment which has been held to be
invalid. By permitting the Appellate Authority to make a finding or give a
direction with respect to a person other than the assessee the Legislature has
made it abundantly clear that for bringing escaped income to assessment the bar
,of limitation would not apply provided there is a finding or direction of the
Appellate Authority that a particular item ,of income had escaped assessment
and may, therefore, be brought to assessment. Under the operative portion of s.
34(1), the Income-tax Officer is empowered to give notice (1) [1964] 1 S.C.R.
29.
430 to an assessee in respect of escaped
-assessment. He can issue such notice under cl. (a) thereof where income has
escaped assessment due to any conduct on the part of the assessee and in such a
case he can issue a notice at any time. Certain restrictions, however, have
been placed upon his power by the first proviso to sub-s. (1) of s. 34, one of
which is the period of limitation of eight years with respect to income of less
than a lakh of rupees. The second proviso to sub-s. (3) is a proviso to the
whole of s. 34 and would consequently apply to a case falling under s. 34(1)
(a). The restrictions placed by the enacting provisions of s. 34(3) would not,
as made clear in the second proviso, apply to such a case. Thus, the proviso in
terms says that when a notice is issued under s. 34(1) (a), no question of
limitation would arise when such notice is issued in pursuance of a direction
or finding of an appellate authority. Since the proceeding in pursuance of a
notice under s. 34 is necessarily independent of the assessment proceedings
under s. 22 with respect to a particular year, the proviso in question need not
be so interpreted as to be limited to a direction made by the Appellate
Authority while dealing with an appeal for that particular year. The fact that
certain income has escaped assessment may come to the notice of an Appellate
Authority in any case and it clearly appears to be the intention of the
Legislature to require an Income-tax Officer to take cognizance of it in the
circumstances stated in the proviso.
It is, however, contended that the power of
the Appellate Authority to make a direction or finding in any appeal before it
is confined to matters specified in s. 31 and that upon a proper construction
of that provision, a direction or finding with respect to income of any
particular year other than the one with respect to which there is an appeal
before it, cannot be competently made by the Appellate Authority.
In support of this contention reliance is
placed up on the decisions in Kamlapat Motilal v. Income-tax Officer and
anr.(1), Hiralal Amritlal Shah v. K. C. Thomas, Income-tax Officer, Bombay (2)
; Pt. Hazari Lal v. Income-tax Officer, Dist. II Kanpur(3); Brindaban Chandra
Basak v. Income-tax (1) (1956) 29 I. T. R. 192. (2) (1958) 34 I. T. R. 446.
(3) (196O) 39 I. T. R. 265.
431 Officer(1). In the first of these cases
the learned judges have observed :
"In our opinion the powers of the
Appellate Tribunal under section 3 3 (4) are limited to the passing of such
order as it thinks fit to make in the proceedings which are then before it on
appeal, and in our judgment it has no power under this section to pass an order
or give directions with reference to the proceedings of an earlier year which
are concluded." We may point out that s. 33 (4) only refers to a finding
or direction made by an Appellate Authority and does not itself confer any
power on an Appellate Authority to make a finding or direction. Indeed, s. 34
deals with entirely a different aspect, that of empowering an Income-tax
Officer to bring to assessment escaped income, and ha(; no concern with the
powers of an Appellate Authority. The provisions which deals with the powers of
an Appellate Authority is s. 31 and it is with that provision that we must
concern ourselves primarily. The next case is not strictly relevant to this
point. But the third one which is again a decision of the Allahabad High Court
has proceeded to construe s. 31 of the Act and we, therefore, have to consider
it. After observing that the scope of the orders which can be passed by the
Appellate Authority under s. 31 the learned Judges have observed:
"The very fact that the Appellate
Assistant Commissioner of Income-tax, when making an order under section 31, is
dealing with an appeal filed by an assessee in respect of an assessment order
indicates the scope of his jurisdiction to give findings and to make
consequential orders: The various orders, which an Appellate Assistant
Commissioner of Income tax can make, are detailed in section 31(3) though there
is no detailed provision about the findings which he can record. It appears to
us, however, that, (1) (1962) 46 I. T. R. 14.
432 from the very nature of the jurisdiction
which an Appellate Assistant Commissioner of Incometax exercises, it must
follow that his power of recording findings is limited to matters which he is
called upon to decide when passing an order in appeal in conformity with the
details laid down in section 31(3). Any order passed by him, which is beyond
the scope of section 31(3), would be an order without jurisdiction and,
similarly, any finding recorded by him, which is not necessary for the purpose
of making an order covered by s. 31(3), would be a finding without
jurisdiction. Further' when applying the second proviso to section 34(3) of the
Income-tax Act, the Income-tax Officer is only competent to take into account
orders which are in conformity with the provisions of section 31(3) and
findings which are necessary for passing those orders. Orders, which are
outside the scope of section 31(3) or findings which are not at all necessary
for making such orders, cannot be taken into account by the Income-tax Officer
for the purpose of relying on the second proviso to section 34(3) which we are
now considering." (p. 271) The learned Judges have proceeded to hold that
the word "finding" must be given the same meaning as that in the Code
of Civil Procedure, that is. a decision of the Court. In other words, they seem
to hold that a finding means only the final conclusion in the case. In support
of this conclusion they placed reliance upon S. C. Prashar v. Vasantsen
Dwarkadas(1).
Section 31(3) of the Act confers certain
express powers upon the Appellate Authority, one of which is to 'confirm.
reduce, enhance or annul the assessment. This
power can be exercised only after the Appellate Authority arrives at some
conclusions on facts. Thus, if an assessee wants to be exonerated from tax with
respect to a particular item of (1) (1956) 2 I. T. R 857 433 income and sets out
the grounds on which he bases his claim for exoneration the Appellate Authority
has to consider them and arrive at its findings with regard to them before it
can reduce or annul the assessment. It would follow, therefore, that the power
to confirm, reduce, enhance or annul an assessment is implicit in the power of
giving findings on the grounds on which a claim is made for one or the other of
these results by the department or the assesee. No express mention of such
power was required in s. 31(3). When an appeal is before an Appellate Authority
the whole matter is at large before it and, therefore, when a, specific case is
put before it by an assessee it has both the power as well as the duty to give
its finding thereon. The ground given by the assessee for claiming a reduction
or annulment of assessment may well be that the income upon which he has been
assessed was not earned in the accounting period of the year to which the
assessment pertains but in respect of a specified earlier or later year. The Appellate
Authority is entitled to go into the whole question and come to a finding one
way 'or the other, whether the income was earned in the year in which it was
alleged by the assessee to have been earned or in the year with respect to
which he has been assessed by the Income-tax Officer. To give a finding on this
question would be obligatory upon the Appellate Authority and his duty to give
a finding must necessarily be referable to the provisions of s. 31(3). We
cannot accept the view of the Allahabad High Court that the word
"finding" occurring in s. 34(3) is susceptible of only one meaning,
and that is that ascertainable from the Code of Civil Procedure. The finding of
a tribunal is its conclusion on a point agitated before it and for a conclusion
to amount to a finding it is not necessary that it should be the final and
ultimate conclusion. We are, therefore, unable to accept the view taken by the
Allahabad High Court. The last mentioned case does not decide the matter
finally. But there the learned Judges have expressed a preference for the view
taken by the Allahabad High Court as against that taken by the Madras High
Court in K. Simrathmull v. Additional Income-tax Officer, Ootacamund(1). In
that case a similar argument to that urged before us and before the (1)(1959)
36 I. T R. 41.
134-159 S. C.28.
434 Allahabad High Court was advanced.
Dealing with it the learned Judges have observed:
"To support this argument no authority
was cited and it appear to us to be completely untenable. When an assessment is
made and either the Department or the assessee appeals, the whole matter would
be before the Assistant Commissioner, and, no express provision would be
necessary to enable him to give directions in respect of a matter already
before him.
This would apply also to the Commissioner and
the Income-tax Appellate Tribunal." (p. 47) They then explained the reason
for an express provision like the one contained in s. 34(3) by saying that it
was necessary to have such provision so as to enable the Incometax Officer to
take action in pursuance of a finding recorded or direction given by an
Apellate Authority.
Finally they observed:
"To construe the proviso in the manner
in which Mr. Subbarya Aiyar invited us to do would be to make that proviso
otiose." With these observations we concur. This decision has been
followed by the Bombay High Court in, General Construction and Supply Co., v.
Income-tax Officer (8th) C. Ward, Bombay(1).
The same High Court has reaffirmed the view
taken in Simrathmull's case(1) in A. S. Khader Ismail v. Income-tax Officer,
Salem(2) and held that the word "finding" in the proviso to s. 34(3)
must be given a wide significance so as to include not only findings necessary
for the disposal of the appeal but also findings which are incidental to it and
would include its conclusion as to whether the income in question in the appeal
was not received during the, year to which the appeal relates. Upon this view
the High Court held that if in pursuance of such a finding, the Income-tax
Officer proceeds to investigate afresh as to in which year the income was
received, the action of the Income-,ax Officer (1) (1962) 44 I. T. R. 16.
(2) (1959) 36 I. T. R. 41.
(3) (1963) 47 I. T. R. 16.
435 would still be the result of or the
logical consequence of the finding arrived at for the purpose of the disposal
of the appeal and the proviso to s. 34(3) would apply to such a case. The view
taken by the High Court is in our judgment correct.
Thus in our view upon a construction of the
relevant provisions we have no doubt that the notice was not in contravention
of the provisions of s. 34 of the Income-tax Act and could not be quashed on
that ground.
The question then remains whether the second
proviso below s. 34(3) is bad as offending Art. 14 of the Constitution.
In support of this contention reliance is
placed by Mr. Bishan Narain for the respondent on the decisions of this Court
in Suraj Mall Mohata & Co. v. A. V. Visvanatha Sastri & anr. (1) and S.
C. Prashar & anr. v. Vasantsen Dwarkadas & ors. (2). In the first case
it was held that both s. 34 of the Income-tax Act and sub-s. (4) of s. 5 of the
Taxation on Income (Investigation Commission) Act, 1947, deal with all persons
who have similar characteristics and similar properties, that the procedure prescribed
in the later Act is substantially more prejudicial and more drastic to the
assessee than the procedure under the former Act and that, therefore, sub-s.
(4) of s. 5 of the former Act in so far as it affects the persons proceeded
against thereunder is void as offending the provisions of Art. 14 of the
Constitution.
On the analogy of this case learned counsel
contends that the second proviso to s. 34(3) enabling a notice to issue only to
an assessee in respect of escaped income without limit of time on the ground
that an Appellate Authority has made a finding or direction in the proceeding
before it makes a discrimination against such an assessee because it does not
lift the bar of limitation with regard to other assessees, similarly situate,
but with regard to whom no finding has been made or direction given by an
Appellate Authority. No doubt, persons whose income have escaped assessment,
and the fact that they have escaped assessment has not been discovered till
after the lapse of eight years from the year in which they could have been
assessed to tax on such (1) [1955] 1 S. C. R. 448. (2) [1964] I S. C. R. 29.
436 income, can be placed in one class. But
surely it does not follow that even in that class there can be no further
classification. The legislature in enacting the particular provision has made a
further or a sub-classification by puttinunder one head those whose assessments
have come up for scrutiny before an Appellate Authority and with respect to
whose escaped assessment a judicial finding or direction is made by the
Appellate Authority and under another head other assessees whose escaped income
was not detected by the Appellate Authority and with respect to which no
judicial finding or -direction was, therefore, made by such authority. There is
a real difference between the two categories of assessees. Prima facie there is
reasonable basis for the sub-classification and the grounds on which it is
made, that is, discovery by a higher Income-tax Authority and a judicial
finding or direction made with respect to the fact by it. These grounds have a
rational relationship with the object which was intended to be achieved by the
law.
that is. to detect and brine to assessment
the escaped income. (See for example A. Thangal Kunju Musaliar v. M. Venkitachalam
Potti & anr. (1) where a further classification of war porfiteers into
those who had evaded substantial amount of income-tax and those whose evasion
was not of a substantial amount was upheld.) We can find nothing in the
decision upon which reliance is placed which runs counter to our view. On the
other hand we find ample support from the decision in Balaji v. Income. tax
Officer, Special Investigation Circle (2) where it has been pointed out that
the two tests of permissible classification under Art. 14 are (a) that the
classification must be founded on an intelligible differentia and (b) that the
differentia must be reasonably connected with the object of the legislation,
and that where they are satisfied by a statute. it does not violate Art. 14 of
the Constitution. As regards the other decision relied upon, it is sufficient
to point out that the majority of the learned Judges have only struck down that
part of the proviso which enables a notice to issue "to any person"
on the ground that it is violative of Art. 14. The precise question which we
have before us does not appear to have been the subject of decision in that
case. We (1) [1955] 2 S.C.R. 1196. (2) [1962] 2 S.C.R. 983 437 are, therefore,
unable to accept the contention of learned counsel.
For the foregoing reasons we allow the appeal
and quash the writ of certiorari issued by the High Court. It may be mentioned
that in the absence of a stay of proceedings by the High Court the Income-tax
Officer has actually made an assessment in pursuance of the impugned notice.
That assessment will stand unless it is
modified or annulled in any proceeding permitted by law. Costs of the appeal
and the petition before the High Court will be borne by the respondent.
ORDER BY COURT In view of the judgment of the
majority, the appeal fails and is dismissed with costs.
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