Indian Copper Corporation Ltd. v. The State of Bihar & Others

_**November**_ **7.** 276 SUPREME COURT REPORTS [1961) INDIAN COPPER CORPORATION LTD. _v._ THE STATE OF BIHAB, AND OTHERS. (S. K. DAB, M. HIDAYATULLAH, K. c. DAS GUPTA, J. C. SHAH and N. RAJAGOPALA AYYANGAR, JJ.) _Sales Tax-" Explanation Sales "-Sale in_ _one_ _State but deli-_ _very outside-Consumption not_ _in State_ _of_ _first destination-Whe-_ _ther_ _"outside" sale-Constitution of India, Art. 286(I)(a)-Bihar_ _Sales Tax Act, r947 (Bihar_ _XIX of z947),_ _ss._ 2(g) _and 33._ The appellant effected sales during the period 26-1-1950 to 31-3-1950, whereunder the property in the goods passed in the State of Bihar but delivery was effected outside Bihar for consumption outside Bihar. In some of these sales the goods were delivered in the State of first destination for consumption therein whilst in other cases the goods were not for consumption in the State of first delivery of destination. The appellant contended that both these categories of sale were exempt from tax under Art. 286(r)(a) as they were outside sales. _Held_ _(per_ Hidayatullah, Das Gupta and Rajagopala Ayyangar, JJ.) that the sales where delivery in the State of first destination was for consumption therein, were outside the State of Bihar within the Explanation to Art. 286(1)(a) and Bihar could not tax them, but the sales where delivery in the State of first **destination was not for consumption therein were not " Explana-** ,tion Sales " and were not " outside " sales and Bihar could tax them. Where the property in the goods passed within the State as a direct result of the sale the sale was not an "outside " sale for the purpose of Art. 286(r)(a) unless it fell within the Explanation. In the first category of sales the appellant was entitled to the exemption and it was not necessary for it to prove that the goods delivered for consumption in the State of first destination were actually consumed therein. . _The State of Bombay_ v. _United Motors (India) Ltd.,_ [1953] S.C.R. 1069 and _Bengal Immunity Company Ltd._ v. _The State_ _of_ _Bihar,_ [1955] 2 S.C.R. 603, referred to. _Burmah Shell Oil Storage_ & _Distributing_ _Co._ _of_ _India Ltd._ v. _The Commercial Tax_ _Officer,_ C. A. No. 751 of 57 and C. A. No. ro of 1958 (Unreported), relied on. _Per_ S. K. Das and Shah, JJ.-Section 33 introduced in the Bihar Sales Tax Act by the Adaptation of Laws Order, 1951, engrafted the same restrictions on the taxing power of the State on the pre-Constitution statutes as were imposed by Art. 286 upon post-Constitution statutes. Section 33(1)(a)(i) of the Act took awav only the power to tax " Explanation Sales" but not the pow'er to tax" non-Explanation Sales". A sale in which goods had been delivered outside Bihar, but not as a direct result of 2 S.C.R. SUPREME COURT REPORTS 277 the sale or not for the purpose of consumption in the State of first delivery was not covered by the Explanation, and the right to tax the sale, if it arose otherwise under the Act, was _Indian_ _Copper_ not impaired by s. 33(1)(a)(i). _Corporation Ltd._ v. CIVIL APPELLATE JURISDICTION: Civil Appeal _The State_ _of_ No. 210 of 1959. _Bihar_ & _Others_ Appeal by special leave from the judgment a.nd order dated J anua.ry 16, 1958, of the Patna. High Court in Mis. Judicial case No. 156of1957. _B._ _O._ _Ghose_ a.nd _P._ _K._ _Chatterjee,_ for the Appellant. _S. P. Varma,_ for Respondents Nos. 1 to 5. _R._ _O._ _Dutta,_ for Respondents Nos. 6 to 20. 1960. November 7. The Judgment of Hida.ya.tulla.h, Das Gupta. a.nd Ayya.nga.r, JJ., was delivered by Ayya.nga.r, J., a.nd that of S. K. na.s and Shah, JJ., was delivered by Shah, J. AYYANGAR J.-The sole question which a.rises in _Ayyangar_ _J._ this a.ppea.l, which comes by way of special leave is a.s to whether sales under which goods were delivered outside the State of Biha.r for the purpose of consump· tion but not within the State of first delivery or first destination, a.re exempt from the levy of sa.les-ta.x by the Biha.r State by virtue of Art. 286(l)(a.) of the Constitution a.s it stood before the recent amendment. The India. Copper Corporation Ltd. (referred to hereafter a.s the a.ssessee-compa.ny) carries on business in copper a.nd various other materials a.nd mineral products a.nd the office of its Genera.I Ma.na.ger is in the district of Singhbhum in Biha.r. The period covered by the assessment now in dispute is Ja.nua.ry 26, 1950 to Ma.rob 31, 1950. The normal practice of the a.ssessee-compa.ny wa.s to deposit sums of money from time to time provisionally towards payment of sales-tax in a.dva.noe a.nd ha.ve the a.mount finally adjusted after the completion of the a.sseBBment of ea.ch yea.r. The a.sseBBee-compa.ny followed this practice in respect of the a.mount of sa.les-ta.x due by it for the year 1949-50. For the financial year April 1, 1949 to ·March 31, 1950, the Superintendent of Sa.les-ta.x, Singhbhum, _**Indian Copper**_ _**Corporation Ltd.**_ v. _**The State of**_ _**Bihar**_ **&** _**Others**_ _**Ayyangar**_ _]._ 278 SUPREME COURT REPORTS [1961] computed the tax liability of the company in the sum of Rs, 3,60,703-4-0 by an order of assessment dated November 13, 1950, and the company made payment of the amount due by it beyond the sums already paid. It would be noticed that this financial year comprised two periods-(!) before the Constitution, viz., April **1,** 1949 to January 25, 1950, and (2) the post.Constitution period from January 26, 1950 to March 31, 1950. There is now no controversy as regards the sales-tax payable in respect of sales effected during the pre-Constitution period. The assessee-company however raised a dispute that in respect of the post-Constitution period, it was not liable to pay any sales-tax in respect of sales to buyers, under which though the property in the goods passed within the State, delivery of the goods was effected outside the State of Bihar for consumption outside that State on the ground that such sales were exempted from tax by Art. 286(l)(a) of the Constitution as it originally stood. It addressed a formal letter to the Commissioner of Commercial Taxes, Bihar, on December 30, 1952, making this demand enclosing a statement showing full particulars of the goods sold, the bill numbers, the date and the amount etc., to enable the refund claimed to be calculated. The assessee-compa.ny followed it up by a formal petition for review of the assessment order by filing a revised return under s. 12(2) of the Bihar Sales-tax Act together with an application for refund. The departmental authorities rejected these applications by order dated July 20, 1953. Further proceedings before the department by way of revision etc. failed to secure to .the assessee-compa.ny the relief which it claimed and thereafter it filed an application under Arts. 226 and 227 of the Constitution before the High Court of Patna praying for the issue of a writ to qua.sh the order of assessment dated November 30, 1950, and the orders rejecting the prayers for review, reassessment and refund and for a direction to the departmental authorities to refund the sum realised by them in so far as the tax related to sales as a result of which goods were delivered outside the State of Biha.r for consumption outside the State of Biha.r. 2 S.C.R. SUPREME COURT REPORTS 279 The learned Judges of the High Court held that the _196o_ order of the Superintendent of Sales-tax, Singhbhum, _.r PP_ ' . _1_ _**n san**_ _[a· ]_ **vo** _**er**_ dated November 13, 1950, should be set aside and _Corporation_ _Ltd._ that the matter should go back to the Superintendent v. to make a reassessment according to law for the post- _The_ _State_ _of_ Constitution period. A further direction was added _Bihar_ & _Others_ requiring the respondent to refund to the assessee so much of the tax as had been paid in excess of the _Ayyangar_ _J._ amount of reassessment to be made by the Superintendent in accordance with the law as laid down by the Court. In formulating the law applicable, the ###### learned Judges drew a distinction between sales as a direct result of which goods were delivered in a State outside the State of Bihar and consumed in that State and those cases in which the goods thus delivered, were not consumed in the State of first destination , but were re-exported from the State of first destina tion to other States. They held that the first category of sales were covered by the Explanation to Art. 286 (l)(a) of the Constitution and were "inside" the State of first delivery and consequently " outside " the State of Bihar within the meaning of the Article and therefore exempt from tax by the Bihar State. In regard, however, to the second category of sales, it was held .that they were not within the Explanation and were therefore outside the constitutional exemption under Art. 286(l)(a). The assessee-company not being satisfied, filed an application to the High Court for a Certificate of fitness under Arts. 132 and 133 of the Constitution, but this having been rejected, they applied to and obtained special leave from this Court under Art. 136 of the Constitution and that is how the appeal is now before us. Three points were urged before us by Mr. B. C .. Ghose, learned Counsel for the appellants: (1) that on a proper construction of Art. 286(l)(a) and the Explanation thereto (as it stood before the Article was a.mended by the Constitution Sixth Amendment Act, 1956) every sale as a direct res.ult of which goods were delivered for consumption outside the State, was not within the taxing power of the State in which the 280 SUPREME COURT REPORTS [1961] _**.r960**_ goods were at the time of the sale, and in which property passed as a result thereof, and that it was immaterial whether the delivery was for the purpose of consumption in the State of first destination or whether the delivery in such State was not for the purpose of consumption therein but, for re-export to other States, (2) that even if Art. 286(l)(a) exempted only sales in which as a direct result of the sale the goods were delivered for the purpose of consumption in the State of first destination, on the pleadings and the evidence before the Court the assessee-company must be taken to have established that all the sales effected by it and in regard to which exemption from payment of tax was claimed, conformed !o this requirement, (3) a. narrower submission, that even it be that to fall within the Explanation the delivery has to be _for the purpose of consumption_ in the State of first destination, the learned Judges of the High Court erred in requiring the assessee-company to prove not merely that the goods were delivered for the purpose of consumption but further that the goods so delivered were actually consumed within that State. We shall now deal with these points in that order. Article 286(I)(a) together with the Explanation on whose construction the first point depends ran in these terms: _**Indian**_ _**Copper**_ _**Corporation Ltd.**_ v. _**The**_ _**Slate**_ _**oj**_ _**Bihar**_ **&** _**Others**_ _**Ayyangar**_ _**J.**_ ' ##### . _"Article 286(1)._ No law of a State shall impose, or authorise the imposition of, a tax on the sale or purchase of goods where such sale or purchase takes place( a) outside the State; ::ir **(b), .............** ............................ --..................... . Explanation.-For the purposes of sub.clause (a) a sale or puchase shall be deemed to have ta.ken place in the State in which the goods have actually been delivered as a direct result of such sale or purchase for the purpose of consumption in that State, notwithstanding the fact that under the genera.I Ia w relating to sale of goods the prope:·ty in the goods has by reason of such sale or purchase passed in another State." The scope and the purpose of this,Explanation was 2 S.C.R. SUPREME COURT REPORTS 281 discussed and explained by this Court in _The State_ _of_ _I9_ _[60 ]_ _Bombay_ v. _United Motors (India) Ltd._ (1) and it is the _Indian_ _Copp_ passage in this judgment extracted below on which _Corporation_ ~;d, reliance was placed by the learned Counsel in support v. of his submission: _The_ _State_ _of_ " ............ The authors of the Constitution had to _Bihar_ & _Othm_ devise a formula of restrictions to be imposed on the _Ayyangar_ _J._ State-power of taxing sales or purchases involving inter.State elements which would avoid the doubts and difficulties arising out of the imposition of sales-tax on the same transaction by several Provincial Legislatures in the country before the commencement of the Constitution. This th~y did by enacting clause (1) (a) with the Explanation and clause (2) of Article 286. Clause (l)(a) prohibits the taxation of all sales or purchases which take place outside the State but a localised sale is a troublesome concept, for, a sale is a composite transaction involving as it does severe.~ elements such as agreement to sell, transfer of ownership, payment of the price, delivery of the goods e.nd so forth, which may take place at different places • ............ To solve the difficulty an easily applicable test for determining what is an outside sale had to be formulated, and that is what, in our opinion, the Explanation was intended to do. It provides by means of a. legal fiction that the State in which the goods sold or purchased are actually delivered for consumption therein is the State in which the sale or purchase is to be considered to have ta.ken place, notwi,thsta.nding the property in such goods passed in another State •........... An "outside" sale or purchase is explained by defining what is an inside sale, and why actual delivery and consumption in the State a.re ma.de the determining factors in locating a. sale or purchase will presently appear. The test of sufficient territorial nexus was thus replaced by a simpler and more easily worka.ble test: Are the goods actua.lly delivered in the taxing State, a.a a. direct result of a. sa.le or purchase, for the purpose of consumption therein ? Then, such sale or purchase shall be deemed to ha.ve taken pla.oe (1) [i;i53] S.C.R. 1o6g, Io8I. 36 282 SUPREME COURT REPORTS [1961] _r96o_ in that State and outside all other States. The latter _c_ States are prohibited from taxing the sale or purchase; _I d_ _[. ]_ _nianoppu_ h" j .. Jff d MJ'J _Co•·pomtion_ _Ltd._ t e iormer a one 1s e t ree to - so. u tip e taxav. tion of the same transaction by different States is also _The_ _Slate_ _of_ thus avoided." _Bih"'_ & _Othm_ It might be mentioned that this portion of the judgment is unaffected by the dissent expressed in the _Ayyanga'_ _f._ later decision in _The Bengal Immunity_ _Company Ltd._ v. _The State of Bihar_ ('). The argument based upon this passage was broadly on these lines: Article 286 (l)(a) imposes a ban on the legislative power to levy a tax on sales which are "outside" the taxing State. What sales are "outside" is not easy to decide because that depends upon _"the situa" of a sale,_ which cannot, in most cases, be located in any one place with certainty-being dependent on a variety of factors which might or might not converge. The Constitution makers did not directly define what was meant by a sale that was " outside the State " but achieved the same purpose by explaining an " inside" sale with the result that what was _not_ an "inside" sale should be held to be an "outside" sale. It must however be pointed out that it was not disputed that the terms of ohe " Explanation " would not be satisfied unless the delivery was for the purpose of consumption _therein,_ i.e. in the State of first destination. If the terms of the Explanation were satisfied, the State of "delivery cum-consumption ",(to coin a convenient expression to designa~e the State in which goods are delivered as a direct result of the sale for the purpose of consumption therein), used in the Explanation, would have power to tax the sale as being one fictionally " inside" it. In such an event all the other States in India, barring that State would be prevented from taxing that sale because the sale would be "outside " those States. This however, it was urged, would not exhaust the operation of the Explanation, but further that the Explanation was exhaustive of what the Constitution makers conceived to be a sale which alone may be the subject of tax by a State. The deduction learned Counsel made from these premises was twofold (I) that (1) [1955J 2 s.c.R. 603. 2 S.C.R. SUPREME COURT REPORTS 283 in cases where goods were as a direct result of the sale _i96o_ delivered outside the State of Bihar for the purpose of _r_ . c ' - th St t f fi d t ' t' th _ndian_ _opper_ consumpt10n in e a e o rst es rna 10n, e _Corporation_ _Ltd._ conditions of the Explanation were satisfied and the v. sales being "outside " the State of Bihar could not be _The_ _State_ _of_ taxed by that State. So far there is no dispute and _Bihar_ & _Others_ indeed the learned Judges of the High Court have, subject to a matter of detail to which reference will _Ayyangar_ _[1]_ _·_ be made later, accepted the contention of the assessee. (2) a further cons.equence, that in cases where goods were delivered as a result of the sale o~tside the State of Bihar, but not for the purpose of consumption in such State of first destination, the terms of the Explanation were no doubt not satisfied and consequently the sale was not inside such State of delivery and indeed not "inside " any State in India within the Explanation, but that such sales also must be held to be "outside " every State in India within Art. 286 (l)(a). The learned Judges of the High Court repelled this contention and, in our opinion, correctly. Tlie passage in the judgment of the United Motors case extracted earlier dealt with Explanation sales and with none else. When the terms of the Explanation were satisfied such sales were by a fiction deemed to be "inside" the State of delivery-cum-consumption and therefore "outside" all other St,ates. In such cases therefor::i, only the State "inside" which the sale is _deemed_ to take place by virtue of the Explanation, is exempt from the ban imposed by Art. 286(l)(a). All other States would be subject to that ban in respect of such sales. The learned Chief Justice however did not, in the passage extracted, deal with the case of sales which did not satisfy the terms of the Explanation. The situs of what might be termed 'non-Explanation' sales has therefore to be determined independently of the terms of the Explanation. Such sales would be exempt from tax only if the sale took place" outside " the State but not otherwise. The next question is, does a sale take place "outside" the State, where as a result of the contract of _**Indian**_ _**Coppef'**_ _**Corporation**_ _**Ltd.**_ v. _**Th.e**_ _**State**_ _**of**_ _**Bihar**_ **6·** _**Others**_ 284 SUPREME COURT REPORTS [1961]' sale, the property in the goods passes to the purchaser within the State; in other words, is a sale completed by the passing of property within the State not " in _**Ayyangar**_ _]._ side" a State, for the mere reason that as a direct result of the sale the goods are delivered outside the State. The answer depends on the meaning to be attributed to the words "a sale or purchase which has taken place" outside the State occurring in the body of Art. 286 (I). The expression "outside the State" is capable of being understood in more ~enses than one. It could be umjerstood as comprehending cases where no element or ingredient which constitutes a sale takes place within the State; in other words as applying solely to those cases where there exists no territorial nexus between the State imposing the tax and the sale. Obviously, this could not have been intended . to be incorporated in Art. 286(1) because the tax in such cases would he beyond the legislative power of the State under Entry 54 of the State List read with Art. 246 of the Constitution. The expression "outside " has therefore to be understood not as a sale so "outside" as not to have any territorial connection between the State in question and the sale, but in a somewhat narrower sense. The real difficulty arises in ascertaining the precise content of the narrower sense in which the word is used as meaning a sale in substance "outside" the State, though there might be some elements of the sale which if the exemption under Art. 286(l)(a) were not enacted, would enable a State to levy a tax on the sale on the ground that it was within the legislative power of the State under Art. 246 read with Entry 54. As already pointed out, the situs of a sale is not easy to determine and several factors which consti I ; tute a completed transaction of sale including the delivery of the goods, !ay claim to be considered as in themselves constituting sufficient nexi to justify their being treated as determining the locus of a sale. Thus, merely by way of illustration, the place where the goods are at the time of the contract of sale, the place where the contract of sale is concluded, the place where the property in the goods passes and that 2 s.c.R. SUPREME COURT REPORTS 285 in which the delivery takes place compete for recognition as constituting the locus of a sale. Before the Constit,ution, these and other similar factors were treated as affording sufficient territorial connection to endow the State in which any of the events occurred with legislative competence to tax the sale. This led to a multiplicity of the taxation of the same transaction of sale by a plurality of States, with the result that the consumer was hard hit and trade itself, and natfonal economy suffered in the process. It has been pointed out that Art. 286(l)(a) was designed to coun _Indian_ _Copper_ _Corporation_ _Ltd._ v. _The_ _State_ _of_ _Bihar_ & _OtheYs_ _Ayyangar_ _]._ teract that state of affairs. If a single State was designed to have the power to tax any particular transaction of sa.le, the question that next falls to be considered is the determination of that State in regard to which it could be predicated that the sale in question was not "outside" that State or in other words, the determination of the particular State in regard to which it could be said that the sale was " inside " that State. The key to the problem is afforded by two indications in the Article itself: (1) the opening words of Article 286(1) which speak of a sale or purchase _taking place_ and (2) the non-obstante clause in the Explanation which refers to the general law relating to " sale of goods under which _property in_ _the goods has, by reason_ _of_ _such sale_ _or_ _pu.rchase, passed_ in another State." These two together indicate that it is the passing of propertv within the State that is intended to be fastened o~, for the purpose of determining, whether the sale in question is "inside " or "outside" the State, and therefore, subject to the operation of the " Explanation" that State in which property pa!:!ses would be the _only_ State which would have the power to levy a tax on the sale. As was explained in the recent decision of this Court in _Burmah_ _Shell Oil Storage_ _&_ _Distributing Co.,_ _of India,_ _Ltd._ v. _The Commercial Ta.x_ _Officer_ (1) : "By sale here (Art. 286(l)(a)) is meant a completed transaction by which property in the goods pass.ei:;. Before the property in the goods passes, ' the contract. (1) C.A. 751 of 1957 & C.A. 10 of 1958 (Unreported). _**Indian**_ _**Copper**_ _**Corporation**_ _**Ltd.**_ v. _**The**_ _**State**_ _**of**_ _**Bikar**_ **&** _**Olhet'S**_ _**Ayyangar**_ _**J.**_ 286 SUPREME COURT REPORTS [1961] of sale is only executory, and the buyer has only a chose in action.' ............... The Constitution thinks in terms of a completed sale by the passing of property and not in terms of an executory contract for the sale of goods.'' Notwithstanding that is not an " outside " sale, the power of the State to tax might be negatived by the operation of the Explanation which by its nonobstante clause-shifts the situs of the sale and renders the sale transaction one within the de!ivery-cnm-consumption State, i.e. as the State in which the sale transaction must be _deemed_ to take place. Where the terms of the Explanation are satisfied, the sale transaction will, by a legal fiction created by it, be deemed to take place " inside " the State of deli very and therefore "outside" the State in which the property passes. The conclusion reached therefore is that where the property in the goods passes within a State as a direct result of the sale, the sale transaction is not outside the State for the purpose of Art. 286(l)(a), unless the Explanation operates. We need also add that the power of the State to impose the tax might still not be available unless the transaction in question is unaffected by the other bans imposed under sub. cl. (l)(b), (2) and (3) of Art. 286. The submission therefore of learned Counsel for the appellants, that in respect of non-Explanation sales the State of Bihar has no power to levy a-tax by reason of such sales being" outside" the State within Art. 286(l)(a) must. be rejected. The second contention urged by the learned Counsel for the appellant was that even assumjng he was wrong on the first point, all the sales by the assesseecompany fell within the terms of the Explanation to Art. 286(l)(a) being sales as a direct result of which the goods were delivered for consumption in the State of first destination, and that the learned .Judges of the High Court were in error in considering, that some of the sales did not conform to this requirement. In support of this submission learned counsel drew our attention to two matters. He first referred us to the application dated December 30, 1952 made on behalf \, _Indian_ _Copper_ _Corporation_ _Ltd._ v. _The_ _Stat•_ _of_ _BihM_ 0- _Others_ _Ayyangar_ _]._ -I I 2 S.C.R. SUPREME COURT REPORTS 287 of the assessee-company to the Commissioner of Commercial Taxes, Bihar, Patna in which the claim for refund of the tax paid was rested on the following ground: After setting out that the tax on sales effected between the period January 26, 1950 to March 31, 1950 was not assessable by virtue of Art. 286 of the Constitution, the application stated: "Total sales of raw materials of copper and brass sheet and circles sold by us and despatched _under railway receipts for_ _buyers' consumption_ are as follows ". Then followed the sales effected and the tax paid in respect of the sales. The claim in this form was annexed to and made part of the petition to the High Court under Art. 226 and 227 of the Constitution and in paragraph. U of the petition, this letter was referred to and a copy thereof was incorporated and marked as 'A'. In this paragraph which was the other matter relied on the claim for refund was said to be " on sales made to buyers outside Bihar State for consumption". Learned Counsel strongly pressed upon us that paragraph 9 and the annexure had clearly asserted that the sales which were the subject of the claim for refund involved a delivery of the goods outside the State of Bihar for consumption in the State of first destination and the State of Bihar not having filed any counter-affidavit challenging the correctness of these allegations, the High Court should have held that the terms of the Explanation were satisfied and should have ordered the refund claimed. We however consider that this submission is without force. Neither in the claim put forward in Exh. 'A ' nor in paragraph 9 of the petition was any distinction drawn between sales under which deliveries were effected outside the State of Bihar for the purpose of consumption in the State of first destination and those in which the deliveries outside the State were eifect,ed for the purpose of consumption not in the State of first destination but in other States. In fact, this was made clear in the later paragraphs of the petition to the High Court from which it is apparent that the assessee-company made a claim for tax exemption in _**Indian**_ _**Copper**_ _**Corporatlon**_ _**Ltd.**_ v. _**The**_ _**State**_ _**of**_ _**Bihar**_ **&-** _**Olhers**_ _**Ayyangar**_ _]._ 288 SUPREME COURT REPORTS [l9til] respect of sales in which the delivery took place outside the State of Bihar, whether the delivery was for the purpose of consumption in the State of first destination or otherwise. In paragraph **l** 7(i) of the petition to the High Court the assessee stated: "(the petitioner was not liable to pay tax on goods delivered outside the State of Bihar which was also for consumption outside the State of Bihar ", and again in clause (iii) of the same paragraph this was repeated: " the goods being outside the State of Bihar, delivered outside the State of Bihar and consumed outside the State of Bihar were not liable to sales-tax by the State of Bihar" and similarly in cl. (v) of the same paragraph a reference was made to "goods delivered .outside the State of Bihar for consumption outside the State of Bihar ". The same idea is emphasized in paragraph 19 also which contained the prayer of the petition. On these averments it. is clear that the claim made by the assessee was that to invoke the exemption contained in Art. 286(l)(a) it was sufficient that the goods were delivered outside the State of Bihar and that it was immaterial whether the delivery was for the purpose of consumption in the State of first destination or otherwise. This involved the same argument which was raised by the learned Counsel that we have dealt with earlier. The learned Judges of the High Court were therefore right in drawing a distinction between the two types of sales which we have already indicated. The last point that was urged by the learned Counsel was that the learned Judges of the High Court erred in requiring the assessee to prove that the goods delivered outside the State of Bihar were _actualJ,y consumed_ in the State of first distination before the exemption from tax could be availed of. In their judgment now un(jer appeal the learned Judges have stated: "The petitioner would not be entitled to exemption if the goods were not consumed in the State of first distination but were re-exported from the State of first destination to other States". Learned Counsel for the appellant complained that 2 S.C.R. SUPREME COURT REPORTS 289 under the Explanation to Art. 286(l)(a) there need be _r96o_ no proof of actual consumption of the goods delivered _c_ _1_ _[a-]_ in the State of first destination but that the Explana- ca:p:~:tio°!~~~. tion was satisfied if the purpose of the delivery under v. the sale was for consumption in that State. If after _The State_ _of_ a sale that satisfied that requirement, viz., _for the_ _Bihar_ & _Others_ _purpose of consumption_ in the State of first destination, h' _Ayyangar_ _)._ t e h b uyer un d er sue a sa e ior is own purposes re- h 1 _[.c ]_ exported the goods that was not a matter with which the seller was concerned and would not affect the character of the sale as one falling within the Explanation to Art. 286(l)(a). Learned Counsel therefore urged that the learned Judges of the High Court went wrong in requiring proof on the part of the assessee that the goods were actually consumed within the State of first delivery outside Bihar and that this was an unwarranted addition to the requirements of the Explanation. We consider this submission well-founded and indeed the learned Counsel for the respondent did not dispute that the actual order of the High Court went beyond the terms of the Explanation to Art. 286(l)(a). The order of the High Court will, therefore, be modified by making it clear that if the goods were as a direct result of the sale delivered outside the State of Bihar _for the purpose_ of consumption in the State of first delivery the assessee would be entitled to exemption of the sales-tax imposed and that it would not be necessary for the assessee to prove further that the goods so delivered were actually consumed in the State of first destination. Subject to this modification, the appeal fails, but in the circumstances of the case there will be no order as to costs. ## SHAH J.-We agree with the conclusion of Mr. Justice Rajagopala Ayyangar, J., but because our approach to the question is somewhat different, we propose to record our reasons separately. The Bihar Sales Tax Act, 1947, was enacted in exercise of legislative authority conferred upon the Provincial Legislatures by entry 42 in List II read 37 _Shah]._ _**Indian**_ _**Copper**_ _**Corporation**_ _**Ltd,**_ v. _**The**_ _**State**_ _**of**_ _**Bihar**_ **&** _**Others**_ _Shah_ _J._ 290 SUPREME COURT REPORTS [1961) with s. 100(3) of the Government of India Act, 1935. By s. 2(g) of the Act, " sale" was defined (in so far as it is material) as meaning any "transfer of property in goods for cash or deferred payment or other valuable consideration .. . .. . provided .. . . .. provided further that notwithstanding anything to the contrary in the Indian Sales of Goods Act, 1930, the sale of any goods(i) which are actually in Bihar at the time when, in respect thereof, the contract of sale as defined in s. 4 of that Act is made, or (ii) which are produced or manufactured in Bihar by the producer or manufacturer thereof, shall, wherever the delivery or contract of sale is made, be deemed for the purposes of this Act to have taken place in Bihar." Under entry 42 of List II of the Government of India Act, 1935, the Provincial Legislatures could tax sales by selecting some fact or circumstance which provided a territorial nexus with the taxir.g power of the State even if the property in the goods sold passed outside the Province or the delivery under the contract of sale took place outside the Province. Legislation taxing sales depending solely upon the existence of a nexus, such as production or manufacture of the goods, or presence of the goods in the Province at the date of the contract of sale, between the sale and the Legislating Province could competently be enacted under the Government of India Act, 1935-see the _Tata Iron and Steel_ _Go.,_ _Ltd. v. The State of Bihar_ (') and _Poppatlal Shah_ _v._ _The State of Madras('}._ By Art. 286 of the Constitution, certain fetters were placed upon the legislative powers of the States as follows: _Art. 286_ :-"(I) No law of a State shall impose, or authorise the imposition of, a tax on the sale or purchase of goods where such sale or purchase takes place-. (a) outside the State; or (b} in the course of the import of the goods into, or export of the goods out of, the territory of India. (1) [1958] S.C.R. 1355· (•) [1953] S.C.R. 677. #### I 2 S.C.R. SUPREME COURT REPORTS 291 Explanation: For the purposes of sub-cl. (a) a sale _iu6o_ or purchase shall be deemed to have taken place in . t e h S tate m ' w h' IC h t e h goo d s h ave actua JI y b een _c Indian P_ 1 _Copper_ [. ] _Ltd_ delivered as a direct result of such sale or purchase _or_ _orav'.on_ for the purpose of consumption in that State notwith- _l'he_ _state_ _of_ standing the fact that under the general law relating _Bihar_ & _Othm_ _r._ to sale of goods the property in the goods has by reason of such sale or purchase passed in another _Shah_ _[1 ]_ State. (2) Except in so far as Parliament may by law otherwise provide, no law of a State shall impose, or authorise the imposition of, a tax on the sale or purchase of any goods where such sale or purchase takes place in the course of inter-State trade or commerce : Provided that the President may by ordet' direct that any tax: on the sale or purchase of goods which was being lawfully levied by the Government of any State immediately before the commencerqent of this Constitution shall, notwithstanding that the imposition of such tax is contrary to the provisions of this clause, continue to be levied until the thirty-first day of March, 1951. (3) No law made by the Legislature of a State '.imposing, or authorising the imposition of, a tax on the sale or purchase of any such goods as have been declai;ed by Parliament by law to be essential for the life of the community shall have effect unless it has been reserved for the consideration of the President and has recei~ed his assent." With a. view to impose restrictions on the taxing power of the States under the pre-Constitution statutes, amendments were made in these statutes by the Adaptation of Laws Order. By the Adaptation of Laws Order, 1951, in the Bihar Sales Tax Act was incorporated with retrospective operation from January 26, 1950, s. 33, which provided : "(1) Notwithstanding anything contained in this Act,( a) a tax on the sale or purchase of goods shall not be imposed under this Act(i) where such sate or purchase takes place outside the State of Bihar; or 292 SUPREME COURT REPORTS [1961] _Indian_ _Copper_ _Corporation Ltd._ v. _The State_ _of_ _Bihar_ 6' _Others_ _Shah_ _]._ (ii) where such sale or purchase takes place in the course of import of the goods in to, or export of the goods out of, the territory of India ; (b) a tax on the sale or puchase of any goods shall not, after the 31st day of March, 1951, be imposed where such sale or purchase takes place in the course of inter-State trade or commerce except in so far as Parliament may by law otherwise ·provide; (2) The Explanation to cl. (1) of Art. 286 of the Constitution shall apply for the interpretation of subcl. (1) of cl. (a) of sub-s. (l)." By this amendment, on the taxing power of the Bihar State the same restrictions were engrafted on the pre-Constitution statute as were imposed by Art. 286 of the Constitution upon post-Constitution statutes. This court has held in the _Bengal_ _Immunity_ _Go.,_ _Ltd._ v. _The State of Bihar_ ( [1] ) that the oper!l.tive provisions of the several parts of Art. 286 namely cl. (1) (a), (l)(b) and (2) and cl. (3) were intended to deal with different topics and one could not be projected or read into another. Therefore, by the incorporation of s. 33 in the Bihar Sales Tax Act read with Art. 286, notwithstanding the amplitude of the power otherwise granted by the charging section read with the definition of" sale", a cumulative fetter of triple dimension was imposed upon the taxing power of the State. The Legislature of the Bihar State could not. since J anuary 26, 1950, levy a tax on sale of goods taking place outside the State or in the course of import of the goods into, or export of the goods out of the territory of India, or on sale of any goods where such sale took place in the course of inter-State trade or commerce. By the Explanation to Art. 286(l)(a) which is incorporated by sub-s. (2) s. 33 of the Bihar Sales Tax Act, a sale is deemed to take place. in the State in which the goods are actually delivered as a direct result of such sale for the purpose of consumption in that State even though under the law relating to sale of goods the property in the goods has by reason of such sale passed in another State. In _the·_ _State_ _of_ _Bombay v._ _The United Motors (India)_ _Ltd.('),_ it was held that (1) [1955] • S.C.R. 603. (2) [1953] S.C.R. 1069 . # ' ### I . 2 S.C.R. SUPREME COURT REPORTS 293 t1ince the enactment of Art. 286(l)(a), a sale described in the Explanation which may for convenience be . called an "Explanation sale" is taxable by that • State c'npd·iant~oppLetrt _or ora_ _ion_ l alone in which the goods sold are actually delivered v. as a direct result of sale for the purpose of consump- _The_ _state_ _of_ tion in that State. The right to tax arises because _Bihar_ & _Others_ the sale is deemed to take place in that State and outside all other States and the latter States are pro- _Shah_ _]._ hibited from taxing the sale ; the former alone is left free to do so. The Bihar Sales Tax Act enacted in exercise of the power conferred by entry 42 of List II of the Government of India Act, 1935, upon the Provincial Legislatures is saved by Art. 372 of the Constitution as existing law, but by the combined operation of subss. (1) and (2) of s. 33, the Bihar State is incompetent to tax sales of goods in the course of imports into and exports out of the territory of India, and after March 31, 1951, sales of goods in the course of interState trade or commerce. In view of the · exposition of the content of the Explanation to Art. 286(l)(a) by this court in the _United_ _MotorB_ _caBe_ (1), the Bihar Sta.te is also incompetent to tax " Explanation sa.les " where the goods are delivered in another State as a direct result of the sa.le for consumption in that State. By this last ban, to the extent provided by subs. (l)(a)(i) and sub-s. (2) of s. 33, the State of Bihar is deprived of its power to tax sales.; but the ban does not wholly extinguish the power of the State to tax sales relying upon a. real territorial nexus between the sale and the State. In other words, by enacting that a tax shall not be imposed under the Act when the sale takes place outside the State of Bihar in s. 33(l)(a)(i}, only the power to tax " Explanation sales" which do not take place within tht\ State of Bihar in taken away, but not the power to tax "nonExplanation sales" in which though under the general law of sale of goods the property passes outside the State, there exists between the taxing power of the State and the sale a nexus as contemplated by the definition of sale in s. 2(g). If the sale is one in which the goods have been delivered outside the State of (1) [1953] S.C.R. 1069. _**Indian**_ _**Copper**_ _**Corporation**_ _**Ltd.**_ v. _**The State**_ _oj_ _**Bihar**_ **&** _**Others**_ _Shah_ _.f._ 294 SUPREME COURT REPORTS [1961] Bihar, but not as a direct result of the sale or not for the purpose of consumption in the State of first delivery, the sale will not be covered by the Explanation, and the right to tax the sale, if arising otherwise under the Act relying upon the territorial nexus, will not be impaired by the prohibition imposed by cl. (l)(a)(i) of s. 33. The right of the State of Bibar to tax a sale relying upon a. real territorial nexus not being impaired by s. 33 of the Act, all sales as defined by s. 2(g) of the Bihar Sales Tax Act are liable to be taxed, except those falling withins. 33(l)(a)(ii), s. 33(2) and "Explanation sales" outside the State of Bihar. The appellant company carries on the business of manufacturing copper and other mineral products in the State of Bihar. It has its registered office and its place of business in the District of Singhbhum in the State of Bihar and is registered as .a " dealer " under the Bihar Sales Tax Act, 1947. The appellant company sent out its products to various places in India in the year of assessment ending on March 31, 1950 and has paid the tax assessed by the Sales Til'x Officer. The appellant is now seeking to obtain a refund of the tax pa.id for the period between January 26 and March 31, 1950, on the plea. that the tax was paid under a misapprehension of the law. The High Court in a.n application under Art. 226 of the Constitution directed the Sales Tax authorities to refund so much of the tax as was not proved to have been pa.id in respect of sales of goods delivered and consumed in the State of first destination. On the goods delivered and consumed in the State of first destination outside Bihar, the appellant could not be ca.lied upon to pay sales tax. That is undisputed. The appellant also claimed that on the goods delivered for consumption in the Sta.te of first delivery outside Bihar, it was not liable to pay sales tax, even if there was no evidence to prove that the goods were in fact consumed in such State. In our judgment, the High Court was in error in directing that the exemption provided by Art. 286( l)(a) read with the Explanation which was at the material time incorporated by s. 33 in the Bihar Sales Tax Act by the Adaptation of 2 S.C.R. SUPREME COURT REPORTS 295 Laws Order, 1951, only applied to all sales of goods _r96o_ delivered and consumed in the State of first destina- _c_ If th d d l' d _r_ . . _1_ _ndian_ _opper_ t ion. [. ] e goo s were e !Vere lOr consumpt10n, It _Corporation_ _Lit>._ is immaterial whether they were in fact conilFmed in v. the State where they were delivered.· The power of _The_ _state_ _of_ the State to levy sales tax relying upon the territorial _Bihar_ & _Others_ nexus between tbe taxing power of the State and the sale, is impaired for reasons already set out to the extent to which it is restricted by the incorporation of Art. 286(l)(a)(i) and the Explanation thereto, in that Act. Therefore, sales effected on or after J a.nuary 26, 1950, where goods a.re as a direct result of the sale delivered in another State for consumption in that other State, are not liable to be taxed. The directions issued by the High Court will therefore be modified as follows: The order of the Superintendent of Taxes is set a.side. He is directed to grant refund of tax pa.id in the light of this judgment. The appellant will be entitled to exemption from payment of tax if the goods are, a.s a direct result of the sale, delivered in another State for the purpose of consumption in that State. _Appeal dismissed subject_ _to_ mod~fication. M. PENTIAH AND OTHERS _v._ MUDDALA VEERAMALLAPPA AND OTHERS. (P. B. GAJENDRAGADKAR, A. K. SARKAR, K. SuBBA RAO, K. N. W ANCHOO and J. R. MUDHOLKAR, JJ.) _Municipality-Committee constituted under_ _old_ _Act continued_ _by_ _repealing_ _Act-Term_ _of_ _office-Power-If_ _can_ _effect_ _sale_ _of_ _municipal land_ - _Interpretation of statute_ - _Power_ _of_ _Court-_ _H yderabad District Municipalities_ _.Act,_ _r956._ _(H_ _yd._ _XV I II_ _of_ _1956),_ _SS._ _I6, I7, I8, 20, 32, 34, 35,_ 76, _77 and 320._ The respondents were the elected members of the Vicarabad _Shah_ _]._ _November_ 7.