S.B. International
Limited Vs. Asstt. Director of General of F.T. & Ors [1996] INSC 130 (24 January 1996)
Jeevan
Reddy, B.P. (J) Jeevan Reddy, B.P. (J) Kirpal B.N. (J) B.P.Jeevan Reddy, J.
CITATION:
1996 SCC (2) 439 JT 1996 (1) 588 1996 SCALE (1)576
ACT:
HEAD NOTE:
Leave
granted.
With a
view to encourage exports, the Government of India issued the "Export and
Import Policy (Ist April, 1992 and 31st March, 1997)" introducing inter alia
a scheme called "Duty Exemption Scheme" contained in Chapter-VII.
Under
this scheme, imports of duty free raw materials, components, intermediates,
consumables, parts, spares including mandatory spares and packing materials
required for the purpose of export production could be permitted "subject
to the fulfillment of a time bound export obligation and value addition as may
be specified". Advance licences could be based on either value or
quantity: it was for the exporter to apply either for a value based advance licence
or a quantity-based advance licences [vide Clauses 47 and 48]. Clause 49 in
Chapter-III sets out the particulars to be mentioned in the advance licence.
One of the particulars to be mentioned is "(d) the value addition in
accordance with the standard Input-Output norms published by means of a public
Notice or, in respect of items for which such norms have not been published,
value addition as may be specified by the competent authority." Clause 52
expressly provides that "the Chief Controller of Imports and Exports may,
on the recommendation of the Advance Licensing Committee (ALC) modify the norms
or prescribe additional norms." Clause 59 prescribes the eligibility for
applying for an advance licence. It says, "any merchant exporter or
manufacturer exporter who holds an Importer-Exporter Code number, a specific export
order/letter of credit and is in a position to realise the export proceeds in
his own name may apply for duty free licences." Clause 60 prescribes that
"value addition norms, as specified by means of a Public Notice issued in
this behalf, shall apply to duty free licences". Clause 63 provides that a
licence issued under the said scheme shall specify the export obligation which
has to be fulfilled within the period specified therein.
Clause
66 provides that "Exports/supplies made from the date of receipt of an
application under this scheme by the licensing authority may be accepted
towards discharge of export obligation...". (Clause 66 has been amended
later in 1993 and 1994. We are, however, concerned with the unamended Clause
66.) On 31st March,
1992, a public notice
was issued, as contemplated by Clauses 49(d) and 60 specifying the value
addition at 1000 percent in the case of "frozen marine products packed in
polythene bags". On September
25, 1992, a change was
effected in the value addition norm- instead of 1000 percent, it became 1900
percent.
The
appellant (we shall be referring to S.B. International Limited as the appellant
and the Assistant Director General of Foreign Trade and Union of India as
respondents) is engaged in the export of marine products. It entered into six
contracts with certain foreign buyers to supply marine products. These
contracts were entered into on 27th May, 4th June, 10th June, 22nd June, 26th
June and 27th June,
1992. In respect of
these export commitments, the appellant made five applications for advance licences,
i.e., on 29th May, 18th June, 24th June, 24th June and 15th September, 1992. [The last mentioned application,
we are told, was in respect of Contracts 5 and 6 mentioned above.
We are
also told that the value of the last two contracts is very substantial as
compared to the value of the first four contracts.] The appellant says that by
September 25, 1992, the export obligation concerned in the first three
applications was fully discharged whereas in respect of the fourth application,
it was fulfilled to the extent of 81% and in the case of the last mentioned
application, it was fulfilled to the extent of 21%. The advance licences were
not issued by September
25, 1992. On that
date, a change was effected, as aforesaid, in the value addition norms,
enhancing the value addition norm to 1900 percent from 1000 percent. Licences
were issued according to this enhanced value addition norm in February, 1993.
The appellant protested against application of revised/enhanced value addition
norm on the ground that since it had applied for advance licences prior to
September 25, 1992, the change brought about on and with effect from the said
date has no application and that its applications ought to be governed by the
value addition norm in force prior to September 25, 1992. Finding no response
from the authorities, it approached the Calcutta High Court by way of a writ
petition.
A
learned Single Judge allowed the writ petition [Matter No.3152 of 1993]
upholding the contention of the appellant. The respondents preferred a Letters
Patent Appeal against the decision of the learned Single Judge. The Division
Bench dismissed the appeal but with a small alteration in the relief granted.
The Division Bench held that the appellant shall be entitled to advance licences
according to pre-revised norm with respect to the actual exports effected by it
before September 25,
1992 but not for the
exports effected thereafter. Aggrieved by the decision of Division Bench, both
the appellant and the State have filed these appeals, insofar as it went
against them. The only question in the appeals is whether the appellant is
entitled to advance licences on the basis of the value addition norm obtaining
prior to September 25,
1992 on the ground
that it had applied therefor prior to the said date.
Sri P.V.Kapoor,
learned counsel for the appellant, submitted that the Export and Import Policy
devising the Duty Exemption Scheme is statutory in nature, having been issued
under Section 3 of the Export and Import (Control) Act, 1947. Applications for
advance licences can be filed under this Scheme even before effecting the
exports, subject, of course, to the obligation to effect the exports in the
prescribed value. Once the appellant made applications for issue of advance licences,
a right accrued to it to obtain the licences in accordance with the policy in
vogue on that date. Any subsequent change in the policy cannot defeat such a
vested right. Learned counsel also relied upon the rule of promissory estoppel.
He submitted that the appellant had entered into export commitments at a
particular price keeping in view the Export and Import Policy in vogue on that
date, the appellant knew that as against the export commitments undertaken by
him, he would be entitled to duty free advance licences of a particular value:
the price agreed between him and the foreign buyer was arrived at bearing the
said consideration in mind: if the Government is permitted to suddenly change
the value addition norm to the prejudice of the appellant, it would suffer
grievous losses - submitted the learned counsel. Yet another submission urged
by the learned counsel is that the authorities cannot take advantage of their
own wrong, viz., the delay in issuing the advance licences. If they had issued
the licences applied for prior to September 25, 1992, the appellant would have obtained licences
of a higher value in accordance with the then existing value addition norm.
Merely
because the authorities have delayed the issuance of licences, they cannot
apply the revised norm to the prejudice of the appellant, especially when the
appellant is in no way responsible for the said delay. Sri Kapoor submitted
that the appellant should be held entitled to advance licences not merely for
the actual exports effected by it before September 25, 1992 but for the whole value of the
export contracts entered into by it. He submitted that the appellant has since
discharged the export obligation under the said six contracts fully.
Sri A.Subba
Rao, learned counsel for the Union of India , on the other hand, submitted that
mere filing of an application does not confer any right much less a vested
right upon the applicant for the issuance of an advance licence. He submitted
that no one has a fundamental right to import and that the said right depends
upon the policy for the time being in force. The policy in vogue on the date of
issue of licences alone governs the licences. Learned counsel further submitted
that there is no allegation much less any finding either by the learned Single
Judge or by the Division Bench that the authorities are guilty of any
deliberate or undue delay in issuing the licences. The issuance of these licences
is not a mechanical or a formal matter. The authorities have to verify the
correctness of the various facts stated in the application and also have to
satisfy themselves that the applicant satisfies the requirements of the Scheme
and other applicable provisions of law before the licences are issued.
The
first question in these appeals is whether a vested right accrued to the
appellant for issuance of advance licences as per the value addition norm in
vogue on the date of filing of the said applications the moment it made those
applications and whether any subsequent change in policy effected before the
issuance of licences, is not applicable to such licences. For answering this
question, one has to look to the policy itself, the material clauses of which
have already been set out. The said provisions make it clear that the object
behind the scheme is to enable the exporter to import raw materials, components
etc. required for the purpose of producing goods for export. It is a facility
provided by the Government - an incentive. There is no right to advance licence
apart from the policy. No citizen has a fundamental right to import, much less
import free of duty.
By
granting the advance licence, the Licensing authority tells the licensee -
"I am permitting you to import raw material, components etc. of a
particular value free of duties but you must export goods of a particular value
[determined as per value addition norm in vogue on the date of licence] within
a particular date. If you fail to do so, you will be liable to levy of
penalties and other action according to law." The duty free import of raw
materials etc. is permitted to enable the exporter to sell his goods abroad at
a more competitive price, thereby fetching precious foreign exchange for the
country. Mere making of an application does not create any right in the
applicant since he has no pre-existing right to such licence. His right is only
that which is given by the Policy. The situation could have been different if
the Policy had said that a person exporting goods of a particular value shall
be entitled to an import licence of a particular value: in such a case, the
export of goods can be said to create a right in the applicant to get an import
licence of the specified value.
Here
is a case, where one has to ask for an import licence promising to export goods
of a particular value within a particular time. It is difficult to appreciate
how can it be said in such a situation that mere filing of an application
creates a vested legal right to obtain a licence according to the value
addition norm in vogue on the date of the application. It is the date of licence
that is relevant and not the date of application therefor. It is obvious that
the norm (value addition norm) in vogue on the date of grant of licence shall
govern the licence. The mere fact that the authorities have a discretion to
take into account the exports made after the date of application for advance licences
makes no difference to this position: it is in the nature of yet another
concession. What is relevant is that the licence granted under Chapter-VII of
the Policy is an advance licence. It is granted in advance of export - rather
to enable the export. The theory of a vested right accruing to the applicant to
get a licence as per the norms in force on the date of application is
inconceivable in such a situation - unless, of course, the policy itself says
so.
It
should be noticed that grant of licence is neither a mechanical exercise nor a
formality. On receipt of the application, the authorities have to satisfy
themselves about the correctness of the contents of the application.
They
also have to satisfy themselves that the application satisfies all the
requirements of the scheme and the other applicable provisions of law, if any.
In a country like ours, where abuse of such facilities is rampant, reasonable
time has to be afforded to the authorities to process the application. [What is
a reasonable time, of course, depends on the facts of each case. No hard and
fast limit can be prescribed.] It is only after appropriate verification that
the licence is granted.
We
are, therefore, of the opinion that the contention that a vested right accrues
to an applicant for issuance of advance licence on the basis of the norm
obtaining on the date of application is unacceptable. The Scheme and the
context militate against the contention. The fact that the policy is statutory
in nature (delegated legislation) has no relevance on the question at issue. It
would be wrong to equate the filing of an application for advance licence with
the filing of a suit where it is held that appeal being a substantive right,
the right of appeal inhering in the party on the date of filing of the suit
cannot be taken away by a subsequent change in law.
So far
as the argument of promissory estoppel is concerned, it is equally
unsustainable in the facts and circumstances of the case. Having regard to the
nature of the advance licence - import first and export later - there is no
room for this argument. The discretion inhering in the authority to take into
consideration the exports effected after the date of filing of the application
for advance licence does not detract from its essential character, as explained
hereinabove. We may also mention that no precise date has been furnished by the
appellant in support of the said plea. In the absence of such date, the plea of
promissory estoppel is misconceived. The appellant has to establish the various
ingredients of this rule, as enumerated by this Court in Motilal Padampat Sugar
Mills Co.Ltd. v. State of Uttar Pradesh
(1979 (2) S.C.R.641) and other subsequent decisions. It is not a pure question
of law.
Now,
coming to the argument of the authorities taking advantage of their own wrong,
viz., delay in issuing the advance licences, it may be noticed that there is no
allegation/averment in the writ petition that the authorities have deliberately
delayed the issuance of the advance licences. We have mentioned hereinbefore
that issuance of these licences is not a formality nor a mere ministerial
function but that it requires due verification and formation of satisfaction as
to compliance with all the relevant provisions. In this case, the applications
for advance licence were made on 29th May, 18th June, 24th June (two
applications) and 15th
September, 1992. The
application of 15th
September, 1992
relates to two contracts of much higher value. The change in policy was on September 25, 1992, i.e., within a few days of the
last application.
Without
a doubt, these applications have to be disposed of within a reasonable time -
indeed with due expedition. But in the absence of any plea in this behalf, it
is not possible to hold that there has been any undue delay, procrastination or
deliberateness on the part of the authorities in issuing the licences. There is
no finding either by the leaned Single Judge or the Division Bench to this
effect. In such a situation, the mere fact that the appellant is likely to
suffer some loss or prejudice - assuming that the said plea is factually true -
cannot be a ground either for invoking the rule of promissory estoppel or to
otherwise bind the Government to apply and adopt the value addition norm in
force on the date of application. In this context, the observations of this
Court in Pankaj Jain Agencies v. Union of India (1994 (5) S.C.C. 198) are
apposite. M.N. Venkatachaliah, CJ., speaking for the Court, held :
"The
third and the last submission is that the sudden and sharp increase of duty
steeply puts up the petitioner's liability from Rs. 1,84,341 to Rs.6,42,065 on
these consignments and constitutes an unreasonable restriction on the
petitioner's fundamental rights under Article 19(1)(g) of the Constitution. A
tax, in particular, in the nature of duties of customs is not per se violative
of Article 19(1)(g).
Mere
excessiveness of a tax is not, by itself, violative of Article 19(1)(g).
This
question cannot be divorced from the nature of the right to import. There is no
absolute right much less a fundamental right to import. [See:
Deputy
Assistant Iron and Steel Controller v. L. Manickchand, Proprietor, Katrella
metal Corpn., Madras (1972 (3) S.C.C.324) and Andhra
Industrial Works v. Chief Controller of Imports (1974 (2) S.C.C. 348); J. Fernandes
& Co. v. Deputy Chief Controller of Imports and Exports 1975 (1) S.C.C.
716). That apart, no factual foundations are laid to demonstrate how this
impost has had the effect of destroying the petitioner's right to carry on a
trade or business. This contention also has no merit." Sri A. Subba Rao,
learned counsel for the Union of India, brought to our notice certain decisions
to which a brief reference would be in order. In Deputy Assistant Iron and
Steel Controller v. L. Manickchand, Proprietor, Katrella Metal Corporation,
Madras (1972 (3) S.C.C. 324), the respondent applied for an import licence in
December, 1968 for importing stainless steel for the licensing period 1968- 69.
His registration certificate showed that he was engaged in the manufacture of
hospital and surgical instruments and household utensils or stainless steel. In
view of the large number of applications for import licences for stainless
steel, instructions were issued in January, 1969 that applications should be
scrutinized carefully after asking for relevant information from the applicants
as to the details of end products to be manufactured by them. The respondent
supplied information in May, 1969 that the hospital requisites proposed to be
manufactured by him were surgical bowls, spittoons and trays. The Chief
Controller, Exports Imports, however, issued instructions that only
"medical and surgical equipment and appliances" should have priority
and not other types of hospital equipment, such as bowls, trays, jugs, etc. In
April 1970, the Chief Controller issued instructions to consider the
respondent's application in terms of the Licensing Policy of 1970-71. The
respondent thereupon filed a writ petition in the High Court contending that
his application having been filed when the 1968-69 Import Policy was in vogue
should be considered in accordance with that Import Policy alone and not in the
light of or under the Import Licensing Policy in vogue in 1970-71. The High
Court allowed the writ petition but was reversed by this Court on appeal. This
Court held, "no case has been made out on the present record for a
mandamus to the department to consider the respondent's application for import licence
in terms of 1968-69 policy. It is not possible on the existing material to
conclude that the department is guilty of any undue laches or delay in dealing
with the respondent's application which would justify the Court in granting the
mandamus prayed for." It was also held that keeping the respondent's
application pending until completion of its examination in the light of policy
in vogue cannot be said to be unreasonable nor can the time taken in that
behalf be characterized as undue delay. Above all, it was held, while emphasising
the necessity of disposing of such applications with due expedition, that
"an applicant has no absolute vested right to an import licence in terms
of the policy in force at the time of his application because from the very
nature of things at the time of granting the licence the authority concerned
may often be in a better position to have a clearer over- all picture of the
various factors having an important impact on the final decision of the
allotment of import quota to the various applicants".This decision
rendered by a Bench of four learned Judges of this Court clearly negatives the
contention of a vested right urged by Sri Kapoor.
The
proposition in Manickchand was reiterated by a Constitution Bench in Andhra
Industrial Works v. Chief Controller of Exports (1975 (1) S.C.R.321). While
observing that the import Control Policy statement contained in what was known
as "Red Book" was not statutory, the Court observed, "no person
can merely on the basis of such a Statement claim a right to the grant of an
import licence, enforceable at law. Moreover, such a policy can be changed,
rescinded, altered by mere administrative orders or executive instructions
issued at any time". The Court held further:
"From
the counter-affidavit filed on behalf of the Respondents, it is clear that the
Import Trade Control policy (Red Book Vol.I) had been amended and the import of
the materials in question for utilization in the end products of most
'automobile parts' was prohibited as per instructions conveyed by Chief
Controller of Imports & Exports in his letter No.IPC (Gen.33)/73/72/3499,
dated September 29, 1972 although general notice of this amendment was
published later on august 18, 1973 (Vide Annexure R-5). The result was that in
accordance with the amended Import Trade Control Policy, the Respondent could
not, in November, grant the licences applied for to the petitioners in respect
of the past period, April 1969-March 1970." The Court reiterated the
proposition in Manickchand that "on the basis of an Import Trade policy an
applicant has no absolute right, much less a fundamental right to the grant of
an import licence". It is true that both decisions in Manickchand and
Andhra Industrial Works dealt with the Import policy which was not statutory in
nature but as explained by us hereinabove because of the very nature and
contents of the scheme, the theory of a vested right is misconceived and out of
place.
On the
question of Promissory estoppel, Sri Subba Rao cited the decisions in D.Navinchandra
& Co., Bombay & Anr. v. Union
of India & Ors. 1987 (2) S.C.R.989), Collector of Customs, Calcutta v. M/s.M.Shashikant & Co.(1992 (2) Supp.S.C.C.306) and Kasinka Trading v. Union Of India (1995
(1) S.C.C.274). On the basis of these decisions, the learned counsel submitted
that any change in policy or rate of duty between the date of placing the order
for import and the actual import import applies to the imported goods and that
the theory of promissory estoppel cannot be invoked in such a situation. We do
not think it necessary to dilate upon these decisions in view of our holding
that in the light of the Scheme concerned herein, there is no room for nay such
plea. For the same reason, it is also not necessary for us to deal with the
decision in Union of India v. Kanunga Industries (J.T.1990 (3) S.C.723) relied
upon by the learned counsel for the appellant.
Accordingly,
the appeal arising from Special Leave Petition (C) No.607 of 1995 [preferred by
the appellant] is dismissed and the appeal arising from Special Leave Petition
(C) No.23900 of 1995 [preferred by the respondents- authorities] is allowed. No
costs.
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