Khemka & Co. v. Maharashtra

A B #### c D E F G H 753 KHEMKA &CO. _v._ STATE OF MAHARASHTRA _27th_ _February,_ 1975 [A. N. RAY, CJ., H .. R. KHANNA, K. K. MATHEW, M. H. BEG, Y. V. CHANDRACHUD, JJ.]. _Central Sales Tax Act_ 1956-S. _9(2)-Scope_ _of Bombay Sales Tax_ _Act-S._ 16(4)-1/ _penalty under_ _tlie_ _Central Act could_ _be_ _levied under_ _s._ 16(4) _of_ _tire_ _Bombay Act._ Section 9(2) of the Central Sales-tax Act, 1956 provides that the authorities for the time being empowered to assess, re-assess. collect and enforce payment of nny tax under the general sales-tax law of the appropriate State shall, on behalf of the Government of India, assess, re-assess, collect and enforce payment of tax, including any p~nalty, payable by a dealer under this Act as if the tax or penalty payable by such a dealer under this Act is a tax or penalty payable under the 11eneral S<•les-tax law of the State. Section 16 of the Bombay Sales-tax Act pro· ~ides for payment and reco.verv of tax. Sub-section ( 4) states that if the tax is not paid by any dealer within the prescribed time, the dealer shall pay a penalty in addition to sales-tax assessed. ·The assessee unsuccessfully contended before various sales-tax nuthoriries as well as before the High Court that levy of penalty under s. 16(4) of the Bombay Sales-tax Act for delay or default in payment of tax under the Central Sales Tax Act was without jurisdiction as it was not warranted by the provisions of s. 9 (2) of the Central Sales-tax Act, 1956. In lhe Mysore case which was similar to the Bombay case, however, the High Court allowed the assessee's claim that the. levy of penalty under lb~ Mysore Sa!e5·tax Act•in respect of sales-tax payable under the Central Sales-tax Act was _11ltra_ _i·ires._ It was contended before this Court that there was no provision in the Central · Sales-tax Act for. imposition of penalty for delay or default in payment of tax and. therefore, imposition of penalty -under the provisions of the State Act for delay or default in payment of tax was illegal. [per Ray, CJ. and Khanna, J.] (Beg, J. concurring in the final results). Allowing the appeal, HELD : The Mysore High Court correctly pointed out that the words "as if the tax or penalty payable by such a dealer under this Act" relate to tax or p·Jn<t!ty which is payable only under the Central Act. [763B] The provision in the State Sales Tax Act imposing penalty for non-payment of sales-tax within the prescribed time is not attracted to impose penalty on dea· !crs under the Central Sales Tax Act in respect of .tax and penalty payable under lhe Central Act. There is no lack of sanction for payment of tax. Any dealer \'.ho would not comply with the provisions for payment of tax would be subjected ta recovery proceedings under the Public Demands. Recovery Act. A penalty is a statutory liability. The Central Act contains specific provisions for penalty. Those are the only provisions for penalty available against the dealers under the Central Act. Each State Sales Tax Act contains provisions for penalties. These prov'.sions in some cases are also for failure to submit a return or failure to register. It is rightly said that those provisions cannot apply to dealers under the Central Act because the Central Act makes similar provisions. Th~ Central Act is a self-contained code which. by the charging section, creaks !!ability for tax and which by other sections creates a liability for penalty and imposes pen~lty. Section 9(2) of the Central Act creates the State authoritie• as ag~ncies to carry out the as~essment. re-assessment. collection and enforcement of tax and penalty · payable by a dealer under the Act. [765H: 766A ·Bl ~ 2-564SCI/75,. B #### c _I_ 754 SUPREME COURT REPORTS U 97 SJ 3 s.c.R. ( J) The words 'as1<ss, re-assess, coJlect nnd enforce ·payment of tax including nny penalty rayabk by a uealcr unJ~r this Ac!' mean that the tax as well as renalty is payable only undi;r the Central Act. By s. 9(2) of the Central Sales Tax Act the State Sales- TtlX Authorities arc created as agents of the Go\'ernment of frdi~. [7CJ D: BJ \2) The words "and for this purpose they may exercise all or any of the powers they haw under the general sales-tax law of the State" ins. 9(2) of the Central Act 1-.~late to "assess, re-assess, collect and enforce payment of tax in· duding any p(:nalty payable by a dealer under this Act." In that context the last limb of s. 9(2) of lhe Central A,ct, namely, "and the provisions of such law .... . . . . . . shall apply accordingly'' means that the provisions of the State Act me applicable for the purpose of assessment, re·assessm~nt, collection and enforcement of payment of tax including penalty payable under the Central Act. The WQrds pf the last pa·rt of s. 9(2) namely, "shall apply accordingly~' relate clearly to the words "and for this purpose" with the result that the provisions of the StMe Act shall apply only for the purpose of assessment, re-assessment, coll.cction and enfor:ement. [761G-H; 7€2A] (3) The extent of liability for tax as well as penalty is not attracted by the doctrine of _cj11sdem_ _generis_ in the application of the provisions of the State Act in regard to assessment, re-assessment, collection and enforcement of payment of t~ix including any penalty payable under the Central Act. The doctrine of _ej11sdtm_ _ge11eris_ shows that the genus in s. 9 (2) of the Central Act is 'for !his purpose'. Tn oth,~r words, the genus is assessm~nt, re-assessment, collection and en· forcem~nt of payment. The genus is applicable in regard ·to the proceduri for D assessment, rc,assessment, collection and enforcement of payment. The genus j, from whom to collect and against whom to enforce. [76~A-C] ( 4) The deeming provision in the Central Act that the tax as well as penalty levied under the Central Act will be deemed as if payable under the general saks tax law of the State, cannot possibly mean the tax or penalty impo~ed under any State Act will be deemed to be tax or penalty payable under the Central Act. The entire authority of the State ·machinery is that "for this purpose" meaning E thereby the purpose of assessing, re-assessing, collecting and enforcing payment of tax including any penalty payable under the Central Act, they, meaning the State agencies, may exercise powers under the general sales tax law of the State. The words "for thi.s prn'pose" cannot have the effect enlarging the contern: of tax and the content of penalty under the Central Act. Liability to pay tax as well '" liability to pay penalty is created by the Central Act. (7620-E] _(5)_ If the liability to pay tax is determined by the provisions of the Central .\ct the liability to pay penalty is also that ''hich is payable under the Central Act. F Th~ procedural law prescribed in the general sales-tax Jaw of the State applie1 tG th~ matter of assessment, re-~ssessment, collection and enforcement of paym.:nt of tax under the Central Act because the liability to pay tax is dctennined under the Central Act. Similarly liability to pay pen•Jtv i:; determined with refercn.:~ to the p1w;i;io11s of the Central Act. [763DJ. _Stii!e_ _o.1_ _J\cr11/n_ v. _P._ _P._ _Joseph_ _&_ _Co .._ 255 STC -183; followed. (6) Rebate is a conc~ssion,,·hereas penalty is an imrosition. The conco'· <ion does not !ninose liability bnt penalty does. Tt, therefore, ~tands to re;»on G that .rchale is included within the nrocedural nart of collection and enforccrnem of p;1yment of tax. ·renal\y, like in1position of tax, cannot be included within th~ prow!ural rart. f763G-H] _()rissa_ _C'111mt_ _Limited_ v. _Tlte State_ _of Orissa_ _&_ _Anr.,_ 27 S.T.C. 118; fo'Jov;;;J. C. _A._ _Ahralia111,_ _Uppootfi/, Kottayam_ v. _The_ _lnco111e_ _Tax_ _O[ficer,_ _KottaYl/'n_ _&_ _A11r.,_ [1961] 2 S:C.R. 765 and _Co111missio11er_ _of Tnco111e-Tax,_ _Andhm Prndrsh_ "I v. _Mis._ _Bhikaji Dadabhai_ _&_ _Co.,_ [1961] 3 S.C.R. 923, distinguish~d. £ (7) Penalty is within assessment proceedings just as tax is within the assessment proceedings when the relevant Act by substantive charging provision levies **. B** **D** **E** **F** **G** **H** KHEMKA & CO. _V._ MAHARASH1 RA 755 tax as well as JlCnnlty. Pcn;1Jty is not merely a sancticJ. It is not merely an adjunct lo assc>1mc11t. ll is not merely consequential to assessment. It is not merc:r mad:inery. Pcn:ilty is in addition to tax and is a liability under :he Act. T'cm1Jty is not a C<':1tinuation of assessment p;o,;ecdings and iienally partakes of the ch:nacter of additional tax. [765B-D] _Jnin_ _Brothers_ _&_ 01 <. v. _U1;ion_ _of_ _India._ 77. l.T.R. 107 followed . (8) Under a taxing statute Jbbility does not begin on assessment. There r,rn;t be a liability creat<·d b:: the Act, the Act must provide for assessment and the Act must pro1 ide for eai'orcement of the taxing provisions. The mere fact that there is machinery for '"sessment, collection ·and enforcement of tax mid penalty in the State Act docs no' mean t [1] rnt the provision for penalty in the State Act is treated as penalty under the Central Act. The meaning of penalty under the Central Ac.t cannot be enlarged by the provisions of machinery of the State Act incorporated for working out the Central Act. [765E·Fl _Jail!_ _Brothers_ & _Ors .•_ v. _Ul!ion_ _of_ _lndin,_ 77, **I.T.R.** 107 and _Cliafluram_ _&_ _Ors._ v. _Ccmm[ssioner of !11comc-tax,_ _Bihar,_ 15, **I.T.R.** 302, followed. Per BEG. J. (l) The prnvbions relating to penalties are special and spcc:ific pro..-ision•; in each Act. They are not part of "the general sales tax hw" of ei1hcr the State er of the Union. ![ the provisions relating to penalties, such as those found in the Central Act and the State Acts. are really special prol'i·;ions which can be invoked in the special circumstances given in each statute, th~ reference to penalties in the concluding portion of s. _9(2)_ must be interpreted to relate cn1y to the special provisions relating to penalties provided for specificr•lly in the Cen· tral Act. [782B·CJ (2) The rule to be applied with regard to a statute purporting to impcsc a charge is ''that the intention to impose a charge upon the subject, must be shown by clear and unambiguous language". If the language leaves room for coming to the conclusion that only penalties specified in the Central Act are enforceable by the machinery for enforcement of liability under the gen?ral sales tax law of a State, then, the legislative intent could safely be presumed to be to confine penalties mentioned in the concluding part of s. 9(2) to only those mentioned specifkrlly in the Central Act. [782F-G] _Oriental Bank Corporation_ v. _Wright,_ [18801 5 App, Cas. 842 @ 856 referred IQ. _(31_ Section 76(a) of the Bombay Sales Tax Act. 1959 repealed the Bombay Sales Tax Act of 1953. Section 16 of the 1959 Act refers to an entirely different subject matter. At the time when the assessment order was made, there wns no provision for imposition of any penalty under s. 16(4) of the Bombay Act of 1953 which the Sales Tax Authorities and the High Court sought to utiii'' to jus'.ify the penalty imposed. [777G·H] (4) In 1956 the Parliament conld not have applied its mind to provisions l'hich caP1e into existence afterw~rds. It could not have incorporated them by reference <ls parts of a procedure applicable to assessments which took place acter 1959 when the Bomhav Act of 1953 was repealed. At the time of the pa?.sing of the Central Act. lhe relevant statute in existence in Eombay was lhe B0m':•aY ,\ct, 1953. Bnt s. 16(4) of the Bombay Act of 1953 under which the mies tax authorities pmported to act, did not exist on the statute book at the time of assessment. Unless it is assumed that s. 9(2) of ihe Central Act, by necessary im;·.]i.:a**tion ..** **authorised** **the** **S!ate** **Legislatures** **to** **go** **on** **in1posing** **such** **penalties** **for** **such** breaches of duty as it pleased them to lay down on beldf Cf Pu!iamcnt subsequently enacted provisions of State enactments would not he avc<ii obk _/.!_ l 8A-CJ _Re._ _Del/Ji_ Lmrs _Act_ (1912) _etc._ [1951] S.C.R. 747 referred to. _<5)_ Section 13 ·af the Mysore Sales Tax.Act 1957 was entirely recast in 1958. It would be carrying the theory of referential legislation too far to ass1:rnc '!oat s. 9(2) of the Central 1\ct, 1956 purported to authorise the State Legislatures to 7 56 SUPREME COURT REPORTS [19751 3 s.C.R. impose liabilities in the nature of additional tax ot· penaltie3 leal'ing their rates and conditions for their imposition also to be determined by the State Legislatures a·.; •rnd when the State Legislatures decided to impose or amend them. [7780] (6) On a co·nsideration of the ?rovisions of s. 16( 4) of the Bombay Act it seems clear that whatever may be the objects of levying a penalty, its imposition gives rise to a substantive-liability which can be viewed either as an additional tax or as a fine for the infringement of the law. It is an imposition of a pecuniary liability which is compar_a ble to a punishment for the commission of an offence. [779B} _!7)_ The imposition of a pecuniary liability, which take the form of a penalty or fine for a breach of a legal obligation, cannot be relegated to the region of mere procedure and machinery for the realization of tax. Such liabilities must be created by dear, unambiguous, and express enactment. The languag•e used should leave no serious doubts about its effect so that the persons who are• to be subjected to such liability fpr the infringement of law are not left in a state of uncertainty as !1) what the~r duties or liabilities are. [7790] (8) The provisions of s. 9(2) of the Central Sales Tax Act make it clear that the powers of the State Sales Tax Officers were specifically limited by the provisions of the Central Act. They cannot go beyond these provisions. It is also clenr from s. 9(2) that these powers are exercisable only "for this purpose". In other words, they are not authorised to collect dues for purposes extraneous to the Cr.ntral A~t. [78 IH] _Pa_ Mathew and Chandrachud, JJ. (dissenting). (!) A careful analysis of s. 9(2) of the Central Act would show that the authorities empowered to assess, reassess. collect and enforce payment of tax payable under the general sales tax law of the appropriate State shall assess, reassess, collect and enforce payment of tax including penalties payable by a dealer under the Central Act as ir the tax or penalty payable by a dealer under the Central Act is a !~ix or penalty payable under the general sales-tax law of the State and for that purpose, the authorities may exercise all or any of the powers they have under the genernl sal·~s tax law of rhe State. [767F-G] _(2)_ If the sales-tax authorities of a State have power, when enforcing payment of sales-tax payable under the general sales-tax law of the State to impose penalty for non-payment of tax within the prescribed time, they will have a like power to impose penalty, for enforcing payment of the tax payable under the Central Act within the time prescribed. It was not necessary that powe~ to impose penalty for enforcing the payment of tax payable by a dealer under the Central Act should have been specifically provided in or conferred separately by the sub-se~tion uoon the sales tax authorities of the State, because, the powe.r to enforce payment of tax payable under the Central Act, in the same manner as the power to enforce tax payable under the general sales-tax law d the State. has been given by it. The provision for imposition of penalty in s. 16 of the Bombay Sales Tax Act facilitqtes the collection of tax as it is a sanction for non-observance of the duty to pay the tax within the prescribed time. It operates as a deterrent against the commission of breach of that duty, and is a means to enforce the payment ()f tax wi.hin the time prescribed. [767H; 768A-0] C. _A.,1braham_ _U1111oottil_ v. _The Income Tax_ _Officer_ [1961] 2 S.C.R. 765, _Marsddi Krishna Reddy_ v. _Income Tax Officer, Tena/i_ [1957] 31 I.T.R. 678. _Commissioner_ _of_ _Income Tax_ v. _Bhikaji Dadabhai_ & _Co.,_ [1961] 3 S.C.R. 923 and _Orissa_ _Cement Limited_ v. _The State of_ _Orissa_ _and Anr._ 27 S.T.C. 1 lR referred to. (3) If rebate can be given on the basis that it would facilitate, expedite and stimulate the collection of tax there is no reason why a penalty could not be imposed to expe~ite, facilitate and stimulate the collection of tax and as part of the process of collection. Payment of rebate is a liability from the point of view of the Revenue .. though it is a concession from the point of view of the assessee. If penalty is levy of money on an assessee, rebate means payment of money to an assessee [770C-Ol ###### A B #### c D E F G H A ## c D E F G H l\HEMKA & CO, _v._ MAHARASHTRA 757 ( 4) It is difficult to hold that Parliament invested the State authorities with power to a~ses;, re-assess, collect and enforce p;1yment of tax payable under the Central Act as if the tax is a tax payable under the general sales tax law of the State, but denuded them of the power to invoke the provision in the general salcstax law of the State for imposition of penalty .for enforcing payment of the tax payable thereunder, as that is an effective means to the enforcement of payment of tax within the prescribed time. [770F-G] (5) The analogy of principal and agent has no relevance in this context. If the power of enforcement of payment of tax payable under the Central Act conferred on the authorities of the State would include the power to impose penalties provided in the general sales tax law of· the State there is an end of the matter. The whole falacy in the reasoning of the _High Court is the assumption that only the penalties provided in the Central Act can be imposed by the authorities by using the machinery of the sa.les-tax law of the State as they alone are specifically mentioned in s. 9 (2) and in ignoring what are the powers actually conferred by the words enforce payment of tax ........ .'.as if the tax .......... payable by . such a dealer under this Act is a tax ........ payable under the general sales tax law of the State" in the sub-section. [772A-B] ( 6) It is clear from s. 9 (2) that the penalties which could. be imposed by the State authorities by virtue of the express provision in it are the penalties provi<led in s. I 0 read with s. 1 OA. [772H] (7) When s. 9 (2) says that assessment, re-assessment, collection and enforcement of payment of tax due under the Central Act should be made by the autho· . rities of the State as if the tax payable .under that Act is tax payable under the general sales-tax law of the State and for that purpose "they may exercise all or any of the powers they have under the sales tax law of the State", there can be no manner of doubt that if for enforcing payment of tax due under sales-tax law of th_e State, they have power to impose penalty, they have the same power of imposing penalty for enforcing payment of tax payable under the Central Act. The reason why the sales tax authorities of the State were given specific power under s. 9(2) to enforce the penalties payable by a dealer under the Central Act is that those penalties were not and perhaps could not have been provided for in the sales-tax law of the State. The penalties provided in s. JO read with s. lOA of the Central Act are not for the purpose of or in connection with assessment, re-assessment, collection and enforcement of payment of tax payable by a dealer under the Central Act and could not have been imposed by the sales tax authorities of the State in making assessment, re-assessment, collection or in enforcing payment of ihe tax payable under the Central Act. Therefore, express power had to be conferred upon the sales tax authorities of the State to enforce the penal- · ties payable by a dealer under the Central Act. f773C-G.I (8) In the nature and scheme of the Central Act. it was not necessary to provide for imposition of penalty or for the other methods of enforcing the payment of tax payable under the Centrnl Act since Parliament has adopted the machinery provided in the general sales tax law of the State as respects enforcement of the tax payable under the Central Act. [774E] (9) The expression "penalties" in the latter part of the s. 9(2) can only refer to penalties imposable under the general sales tax law of the State in connection . with assessment, re-assessment, collection and enforcement of payment of tax .. The latter part of the sub-section only enumerates some of the powers exercisable by the sales-tax authorities of the State to assess, re-assess, collect and enforce oayment of tax payable under the Central Act. The language of the sub-section beginning with "and for this purpose they may exercise all or any .of the powers they have under the general sales tax law of the State, and the provisions of such Jaw including provisions relating to returns, provisional assessment, advance payme~t of tax .... appeals, reviews, revisions, references, refunds, penalties ...... " makes it clear that the word 'penalties' occurring therein can refer only to penal· tics rirovided in the general sales-tax Jaw of the State. In other words the express mention of the power to impose 'penalties' among the enumerated. powers beoinning with the ·.vords "and the provisions of such law including the provisions rel~ting to ...... penalties" would put it beyond doubt that the word "penalties" SUPREME COURT REPORTS ' [1975] 3 s.c.R. 758 in the lallcr part of the sub-section can only refer to penaltie> imposabl1~ under the g:neral sales tax law of th~ State in relation to assessment, re-asscs~ment, col h~cti>in and enforcement of p::;·meU': of tax pa·yable thereunder. \77JB-D] CIVIL APPELLATE JURISDICTION : Civil Appeal No. 2089 of 1969. Appeal by Special Leave from the Jt:dgmcnt •and Order dat;:d the 22nd February 1968 of the Bombay High Court in Sales Tax Reference No. 36 of 1967 and _Civil_ _Appeal_ _No._ 2118 _of_ 1970 from the Jud1!lncnt and ord~r dated the 18th March, 1970 of the Vfysorc High Co~rt in Writ Petition No. 345 of 1970. _S._ _T._ _Desai,_ _P._ _G._ _Blwrwri_ and _K._ _J._ _John,_ for the api;cllant (In C.A. 2089/69). _:'vi,_ _Veerappa,_ f?r the appellant (in C.A. 2118170). _Sai;tosh_ _Chatter,jee_ and _G._ _S._ _Chatterjee_ for the Applicant/Intervener (State of West Bengal). ' I ## c _L._ _N._ _Sinha,_ _Solicitor_ _General,_ _M._ _N._ _Shro.fj_ for the Intervener D (L'nion of India in C.A.2089 /69). _L._ _N._ _Sinha,_ _Solicitor_ _General,_ _M._ G. _Bha11dare_ and _M._ _N._ _Shroff_ for respondent (C.A. No. 2089/69). The Judgment of A. N. Ray, C.J. and H. R. Khanna, .T. was delivered by Ray, CJ. K. K. Mathew, J. gave a dissenting opinion E on behalf of himself and Y. V. Chandrachud, J., M. H. Beg, J. gave a separate Opinion. RAY, C.J.+-These appeals raise the question as to whether the asscssees under tile Central Sales. Tax Act, 1956 hereinafter referred to <ls the Central Act could be made liable for penalty under the provisions of the State Sales Tax Act hereinafter referred _to_ as the State F Act. The peJrnlty imposed under the State Act is for default in payment of taxes within the prescribed time. The Central Act states section 9(1) that the tax payable by any dealer under the Central Act on sales of goods effected by him in the course of inter-.state trade or commerce shall be levied by the Government of India and the G tax so levied shall be collected by that Government in accordance with the provis:ons of sub-section (2) in the State from which the movement of gqods_commmced. #### Section 9(2) of the Central Act is as follows : "Subject to the other provisions of this Act and the Rules m<.de thereunder, the authorities for the time being empowered to assess, re-assess, collect and enforce payment of any tax under the general sales tax law of the appropriate State H KHEMKA & co., _v._ MAHARASHTRA _(Ray,_ C.J.' 759 A B #### c D E F G H shall, on beh•alf of the Government of India, assess,· re-assess, collect an\! enforce payment of tax, including any penaliy, payable by a dealer under this Act as if the tax or penalty payable by such a dealer under this Act is a tax or pen•alty payable U'i1der the general sales tax law of the State; and for this purpose they may exercise all or any of the powers they have under the general sales tax l'aw of the State; and the provisions of such law, including provisions relating to returns, provisiu [1] aal assessment, advance payment of tax. regisfration of the transferee of any business, imposition of the tax liability of r. person carrying on business on the· tmnsferee of, or successor to, such business, transfer of liability of any firm or Hindu undivided family to pay tax in the event of the dissolution of such firm or partition of such family, recovery of tax from third parfas, appeals, reviews, revisions, references, refunds, rebates, penalties, componding of offences and treatment.of documents furnished a dealer as confidential shall apply accordingly. Provided that if in any State or part thereof there is no go1eral sales tax Jaw in force, the Central Government, may, by rules made in this behaif make necessary provision for all or any of the matters specified in this sub-section.'' Section 6 of the Central Act provides for liability to tax on interstate sales. Section 8 of the Central Act provides for rates of tax on sales in the course of inter-State trade or commerce. Section 9 of the Ceiatral Act provides for collection of tax and penalties. Section 10 of the Central Act provides penalties. The various grour,ds for penalties are fully enumerated there. Section lOA (1) of the Central Act provides for imposition of penalty in lieu of prosecution. The contention on behalf of the assessee is that there is no provision i•,1 the Central Act for imposition of penalty for delay or default in payment of tax, and, therefore, imposition of penalty under the provisions of the State Act for del'ay or default in payment of tax is illegal. The rival contention on behalf of the Revenue is that the provision for penalty for default in payment of tax as enacted h1 the State Act is upplicable to the payment and collection of the tax under the Central Act and is incidental to 'llnd part of the process of such payment and collection. The Solicitor-General on behalf of the Reve'.me placed reliance on th<.: decisions in _K._ _V._ _Adinarayana Setty_ v. _Commercial_ _Tax_ _Officer,_ _Kolar_ _Circle,_ _Kolar_ 14 S.T.C. 587; _Commissioner of Sales_ _Tax,_ _Madhya_ _Pradesh,_ _Indore_ v. _Kantilal_ _Mohan/al_ _&_ _Brothers_ 19 S.T.C. 377; _M/s_ _H._ Jf. _Esufali_ _H._ _M._ _Abdulali_ v. _Commissioner of_ _Sales_ _Tax_ _M.P._ _l ndore_ 24 S.T.C. 1; and _Auto_ _Pins_ _(India)_ v. _The_ _State_ _of_ _Haryana_ _&_ _Ors._ 26 S.T.C. 466 in support of his contntion. The contentions of the Solicit::>r General are these : Section 9 ( 1) ·of the Central Act speaks of tax. That section does aot mention penalty. _760_ SUPREME COURT REPORTS (19751 3 s.c.R. Tax will include collection and enforcement of payme,1t. The words "tax and penalty payable by a dealer under this Act" indicate that the . word~ "under this Act" in the Central Act relate only to a dealer. Section 9 (2) of the Central Act is a provision prescribing the procedure for assessing, collecting and enforcing payment :>f tax. 'The words. "collect and enforce payment of tax, including any penalty" in Sec:tion 9(2) of the Central Act ir1clude not only penalties imposed py the Central Act but also penalties under the State Act. The words "as if the tax or peaalty payable by such •a dealer under this Act is a tax or penalty payable under the general sales tax law of the State" indicate that tax or penalty is imposed by the Central Act and by incorporating the State Act as a 'Part of thP. Central Act the$abi!ity to pay tax is enforced by penalty for delay or default in payment of tax. The Solicitor-General further submitted a.s follows : The latter part of section 9(2) of the Central Act, viz., "for this purpose they may exercise all or any of the powers they have under the ge,1eral sales tax law of the State; •and4the provisions of such law ........ shall apply accordingly" shows that the enforcement provisions in the State Act for delay or default in payment of tax are adopted by the Central Act for working out the provisions relating to assessment, re-assessment, collection and e;,1Eorcement of tax or penalties. Penalty is a sanction for non-payment. If the assessee does not pay and if there is no provision for imposition penalty, there will be no sanction for enforcement of payment The purpose for which the State Act is incorporated in the Ce,1tral Act is, int::.r alia, enforcing payment of tax which inc:ludes penalty for deloay and default in payment of tax. In short, just as penalty is imposed for non-payment of tax under the State Act that provision is attracted for delay or default, in payment of tax under the Cenrtal Act. ' On behalf of the assessee it was said that the provisions. contained i11 section 9 ( 2) of the Central Act mean that only if tax as well as penalty is payatle by a dealer under the Central Act then there can be coHection and enforcement of tax and penalty in the same mal1'ner as provided i11 sales tax law of the State. Second, the Central Act must lrave a substantive provision to wammt imposition of penalty. The provision in a. State Act regarding penalty for default in payment cannot be applied when there is no substantive provision relating to levy or penalty in the Central Act in respect of that default. Third, se:ctim 9(2) of the Central Act is procedural and only deals with utilisation of existing m.:ichinery in State Jaw. The: State authorities are empowered to exercise powers under the general sales tax law of the State to assess, re-assess, collect and enforce payment of tax and penalty payable under the Central Act. Just as tax payable under the Central Act can be collected and enforced similarly, only penalty payabie under the Central Act can be collected and enforced. Counsel on behalf of the assessees relied on the decisions in _B._ _H._ _Shah_ & _Co._ v .. _The_ _State_ _of Madras_ 20 S.T.C. 146; _The_ _State_ _of Madras_ v. _M._ _Angappa__ _Chettiar_ _and_ _Sons_ 22 S.T.C. 226; _Guldas_ _Narasappa_ _Thimaiaiah Oil'Mills_ v. _Commercial_ _Tax_ _Officer,_ _Raichur_ 25 S:.T.C. A B #### c D E F G H _A_ B #### c D KHEMKA & CO. _v._ MAHARASHTRA _(Ray,_ _C.J.)_ 761 489; and _Hurdatroy Jute_ _Mills_ _Private_ _Ltd. Katihar_ & _Ors._ v. _Superin-_ _tendent of Commercial_ _Taxes,_ _Purnea_ & _Ors._ 30 S.T.C. 151 in support of the proposition that the substantive law for penalty under the State Act is not incorporated in the Central Act. Section 9(2) of the Central Act first provides that the authorities empowered to assess, re-assess, collect and enforce payment of any rax under the general sales tax law of the appropriate State _sha:ll,_ on behalf of the Government of Lldia, assess, re-assess and enforce payment of rax including any penalty payable by a dealer under the Central Act. The State Sales Tax authorities are thus created agents of the Government of India. The second important part in section 9(2) of the Central i\ct is that the State authorities shall assess, re-assess, collect and enforce payment of tax including any pe.rnlty payable by the dealer under the Central Act as if the tax or penalty payable by such a dealer under the Central Act is a tax or penalty payable under the general sales tax law of the State. This part of the section sets out the scope of work of the State agencies. The words "assess, re-assess, collect and enforce payment of tax including any penalty payable by dealer under this Act" mean that the tax as well •as pe<a!!lty is payable only under the Central Act. To suggest that the words "under this Act" qualify dealer will be unsound for two reasons. First, section 2 (b) of the Central Act defines a dealer. A dealer is not defined as dealer under the Central Act but as one who carries on business of buying a•ad selling. If the words "under this Act" were to relate only to dealer then the words "under this Act" would have to be scored out in relation to the words "tax· E including any penalty payable". The result would be that the words "payable by a dealer" in the context of the words "as if the tax or pe1mlty payable by such a dealer under this Act" would be rootless. F It is only tax as well as pe<.1alty payable by a dealer under the Central Act which can be assessed, re-as.sessed, collected and enforced in regard to payment. The words "as if the tax or penalty payable by such a dealer under the Central Act is a tax or penalty payable under the general sales tax law of the State" have origin and root in the words "payment of tax including any penalty payable by llealer under the Central Act." Just as tax under the State Act cannot be P'ayable and collected and enforced, similarly penalty under the State Act cannot be assessed, collected and enforced. The words "and for this purpose they may exercise all or any of G the powers they have U'ader the general safos tax law of the State" in section 9(2) of the Central Act are important. The words "and for this purpose" relate to "assess, re-assess, collect and enforce payment of tax including any penalty payable by dealer under this Act." . In that context; the last limb of section 9 ( 2) of the Central Act viz. "and the provisions of such law ........ shall apply accordi,1gly" mean that . the provisions of the State Act are applicable for the purpose of assessH ment, re-assessment, collection aad enforcement of payment of tax G including pen•alty payable under the Central Act. The words of the last part of section 9(2) _viz._ "shall apply accordingly" relate clearly 762 SUPREME COURT REPORTS (19751 3 s.c.R. to the words "1nd for this purpose" with the result that the provisicrn or the StatG Act shall apply only for the purpose of assessment, re assessment, collection and enforcement. The doctrine of _efusdem_ ~;e11eris shows ;hat the genus in section 9 ( 2) of the Central Act is "for this purpose". In other words, the genus is assessment, re-assessment, coflection and enforcement of payment. The genus is appliC'able in regJrd to the procedure for assessment, re-as'icssment, collection and r.nfc1cement of payment. The genus is from whom to collect and ~.~:ii:ist whom to en1forcc. It is apparent that the extent of liability f,~r tax as w1~ll as penalty is not attracted by the doctrine of _ejusd,·m_ .~Ci!':'.' i.1 _in_ th'~ application of the provisions of the State A~t in regard tn :.s,;~ssment, re:assessment, collection and enforcement of payment of !.::x incllding any penalty payable under the Central Act. A B ##### c The deeming provision in the Central Act that the tax as well as penalty levied under the Central Act will be deemed as if payable under the general sales tax law of the State carmot possibly me~m that tax or penalty imposed under any State Act will be deemed to be tax or prnalty payable under the Central Act. The entire authority of the State machim,ry is that "for this purpose" meaning thereby the pur- D pose of assessing, re-assessing, collecting and e'aforcing payment of tax including any penalty payable under the Central Act, they, meaning ,the State agencies, may exercise powers under the general sales toax law of the State. The words "for this purpose" cannot have the:.effeet of enlarging the content of tax and the content of penalty payable u [1] .1der the Central Act. Liability to pay tax as well as liability to pay penalty is created by the Central Act. One of the reasons why tax E as w.:11 as penalty is the substantive provision in the Central Act and is not incorporat~d by reference to the State Act is illustrated by the history of section 9 ( 2) of the Central Act. The present section 9 ( 2) of the Central Act was formerly section 9 (3) of the Central Act. The .Madras High Court in _D._ _H._ _Shah_ & _Co.'s_ case pointed out that the imposition of penalty under sectibn 12(3) of the Madras Act, 1959 could not be attracted for levy of penalty. The Madras High Court F gave the reason that then sectio•a 9(3) of the Central Act only adopted the procedure of the State Act for asses~ment, re-assessment, collection and enforcement of tax as well as penalty pay.able under the Central Act. The Madras High Court in _Angoppa_ _Chettiar_ & _Sons_ case ('supra) gave the. correct reason that the power to C'.)!lcct penalty under the G then· section 9 ( 3) of the Central Act would cover only the penalty payable under the Central Act and would not include a power to impose penalty for a contravention or omission for which the Central Act did· Mt contain a provision. In that case, the Madras Genera:l Sales Tax Act, 1939 which was i•acorpomted by reference by section 9 ( 3) of the Central Act as' it then stood did not contain a provision for levv of a penalty. Subsequently, section 16(2) of the Madras Generlil H Sales Tax Ac:t 1959 provided for levy of penalty for failure to disclose a relevant turnover. The conclusion which the Madras High Court A B #### c D E F G H KHEMKA & CO. _v._ MAHARASHTRA _(Ray,_ C.J.) 763 arrived at was that provisions of then section 9(3) of the Central Act could \.lot be applied for levy of a penalty under section 16(2) of the .\Iadras Act. The Mysore High Court in _Guldas_ _Narasappa_ _Thimmaiah_ _Oil_ _Mills_ case (supra) which is the present appeal pointed out that the provisions contained in section 13 ( 1) and (2) of the State Act in regard to penalty for default in making payriJ.ent could not he applicable because a comparable provision was not to be found in the Cc<,1tral .:\ct. The Mysore High Court correctly pointed out that the words "as if the tax or penalty payable by such dealer under this Act" show that the words "payable by such a dealer under this Act" relate to tax or penalty which is payable only under the Central Act. The Mysore High Court relied on the decision of this Court iri _Swte_ _of_ _Kera/a_ v. _P._ _P._ _Joseph_ & _Co._ 25 S.T.C. 483 in support of the proposition that the Sl'ate law is applicable only in regard to proc<?dure for assessmeat, re-assessment, collection and enforcement. If the liability to pay tax is determined by the provisions of the Central Act the liability to pay penalty is also that which is payable under the Central Act. This Court in the Kerala case said that the procedural law prescribed in the general sales tax Jaw of the State applies to the matter of assessment, re-assessment, collection and enforcement of payment of tax 'under the Central Act because the frability to pay tax ls deter-nincd u.1der the Central Act. Similarly, liability to pay penalty is determined with reference to the provisions of the Central Act. This Court in _Orissa_ _Cement Limited_ v. _the State_ _of_ _Orissa_ & _An:·._ 27 S.T.C. 118 considered whether rebate provided in section 13(8) c-'1', h~ Orissa Sales Tax Act was available to dealers if they paid the lax mider the Central Act before tlfe due date of payment. It may be stated that at the relevant time of the decision in :the _Orissa_ _Cement_ case (supra) the provisions co [1],1tained in the then s.ectioP 9 ( 3) .of the Central Act stated _inter_ _a/ia_ that "the provisions of such Jaw including the provisions relating to returns, appf.!als, reviews, revisiom, references, penalties and compounding of offence~ shall apply accordingly," and the word "rebate" did not occur there. This Court said that rebate for paymt!at of tax within the prescribed time under the State Act was •available to dealers for payment of tax under the Central Act on the reasoning that the power to collect the tax assessed in the same manner as the tax on the sale and purchase of goods under the general sales tax law of the State would include within itself all concessions given under the State Act for paymc.<,1t within the prescribed time. The reason why rebate is allowed and penalty is disallowed is that rebate is a concession whereas penalty is an imposition. The concession does not impose liability but penalty does. It, therefore, stands to reasor. that rebate is included within the procedural part of collection and enforcement of payment. Penalty like impositicia of tax cannot be included within the procedural part. The decision of this Court in C. _A. Abraham, Uppoottil. Kottayam_ _v.The Income_ _Tax_ _Officer,_ _Kottayam_ _&_ _Anr._ (1961) 2 S.CR. 765 was relied on by the Solicitor General in support of the proposition 1 tha• 764 SUPREME COURT REPORTS ll 97 SJ 3 s.c.R. ';;,tssessment" ;ncludes iability to pay pmalty. The ratio d the dcx·ision docs not support the submission. In _Abraham's_ Lase (supra J the assessee was subjected to tax for suppressed income and pcn•,1ltics for conceali,1g the income. The question was whether scctil':t .q of the Income Tax Act would attract liability to pay. Sccclon H of the Act sl'atcd that the asscssee would be liublc to asscssmcnr under Chapter IV for the amount of tax payable and all the proYision~; of that Chapter would apply. This Court said that the word "a,sc~'­ ment" had been used in its widest connotation in Chapter 1 V <.:·!· 1h~ Act. It was contended that an order imposing pewalty under section 28 of the Act could not by virtue of section 44 be impl'Secl. This Court held that section 44 of the Act expressly enacted thaJ: the prn. visions of Chapter IV would apply to the assessment of a bt1siness carried on by a firm even after discontinuauce of its business. Section _2_ S is one of the sei:tia.is in Chapter IV. Section 28 imposed a penalty for the concealment of income or the improper distribution of profits. The defaults made in furnishing a return of the total incom1~, in comp lying with a notice and in concealing the particulars of income were treated as penalties under setion 28. Section 28 w•as held by this Court to be a provision euacted for facilitating the proper assessment of taxable income and to apply to >an assessment under Chapter IV. The decision of this Court in _Abraham's_ case (supra) is non-sequiter in regard to the contentions advanced on behalf of the Revenue in the present case. The reason is that in _Abraham's_ case (supra) •assessment and imposition of penalty is under the same Chapter in the Act. The assessment is under Chapter IV. Penalty is provided in a section uiader Chapter IV. Penalty is arising in course of assessment under the s•ame Act. This Court in _Commissioner,,_ _of_ _Income-Tax,_ _Andhra_ _Pradesh_ v. M/s. _Rhikaji_ _Dadabhai_ & _Co._ (1961) 3 S.C.R, 923 dealt with the meaning of the word "assessment." The Income-tax Officer there found that the assessce's books of accounts were unreliable and he issued a notice under section 40 of the Hyderabad Income-tax Act to show cause why penalty should ~10t be imposed in addition to tax. The State of Hyderabad merged with the Indian Union during the pendency of the proceedings before the Income Tax Officer. By section 13 of the Finance Act, 1950 the Hyderabad Income Tax Act ceased to have effect from ·1 April, 1950, but the operation of that Act in respect of levy, assessment and collection of income tax and super-tax .in respect of periods prior thereto for which liability lo income-tax could not be imposed under the Indian Income Tax Act was saved by section 13 (1) of the Finance Act. The question was whether the Income-tax Officer had power on 31 October, 1951 to impose penalty under section 40 of the Hyderabad Income Tax Act. This Court held that. the power of the Income-tax Officer to impose penalty under section 40 of the Hyderabad ~ct in respect of the year preceding the date of the repeal of the Hyderabad Income-tax Act was not Jost b.ecause section 13 of the Finance Act, 1950 saved its operation. · The proc~edings for imposing penalty could be continued after the enactment of the Finance Act, 1950. The decision of this Court in _Bhikaii_ _Dadabhat&_ _Co's_ case (supra) shows that penalty is imposed as a substantive liability. ' A B #### c D E F G H A B #### c D E F G H KHEMKA & co. _v._ MAHARASHTRA _(Mathew,_ J.) 765 The Income Tax Act 1961 imposes penalty up.der sections 270 and 271. These sections in the focome Tax Act provide for imposition of penalty on contumacious or fradulent assessees. Penalty is in ::!ddition to income tax, if any, determined as payable by the assessee .. · Tax and pell'a!ty like tax and interest are distinct and differeat concepts under the Indian Income Tax Act. The word "assessment" could. co\-cr penalty proceedings if it is used to denote the whole procedure for imposing liability on the tax payer as happened in _Abraham's_ case (supra). Penalty is withi'.1 assessment proceedings just as tax is within assessment proceedings when the relevant Act by substantive charging provision levies tax as well as penalty. Penalty is not merely sanction. It is not merely adjunct to assessment. It is 11ot merely consequential to assessment. It is not merely' machinery. Penalty is in addition to tax and is a liability under the Act. Reference may be made to section 28 of the Indian Income-tax Act, : 922 where penalty is provided for concealment of income. Penalty is in addition to the amoU'at of income-tax. This Court in _Jain_ _Bro-_ _thers_ _&_ _Ors._ v. _Union_ _of_ _India_ 77 I.T.R. 107 said that penalty is not a continuation of assessment proceedings and that penalty parrakes of the character of additional tax. The Federal Court in _Chatturam_ _&_ _Ors._ v. _Commissioner of Income-_ _ta:r,_ _Bihar_ 15 I.T.R. 302 said that fability does not depetad on assess ment. There must be a charging section to create liability. There mmt be first a liability created by the Act. Second, the Act must provide for assessment. Third, the Act must provide for enforcement of the taxing provisions. The mere fact that tRere is machinery for :i.sscssment, collection and enforcement of tax and penalty in the St1te Act does not mean that the provision for penalty in the State Act is treated as penalty under the Central Act. The meaning of penalty und~r the Central Act cannot be enlarged by the provisions of machi nery of the State Act incorporated for working out the Central Act. 1nis Court in _State_ _of_ _Tamil_ _Nadu_ v. _K._ _A._ _Ramudu_ _Chettiar_ _&_ _Co._ A.LR. 1973 S.C. 2230 said that the power to enhance assessment which was contained in the Madras Act of 1959 though such power was not available under the 1939 Act would be available in respect of assessment under the Central Act. Enhanceme'.1t of assessment is in the process of assessment. It is a procedural power. The liability to tax is created by the statute. Therefore, when the power to assess is attracted a _fortiori_ enhancement is within the power. For the foregoing reasons we 'are of opinion that the provision in the State Act imposing penalty for non-payment of income-tax within the prescribed time is not attracted to impose penalty on dealers under the Central Act in respect of tax and penalty payable under the Central Act. There is no lack of sanction for payment of tax. Any dealer who would not comply with the provisioas for p~y­ ment of tax, would be subjected to recovery proceedings under the Public Demands Recovery Act. A penalty is a statutory liability. The 766 SUPREME COURT REPORTS fl975l 3 s.c.R. Central Act contains specific provisions for penalty. Those are the only provisions for penalty available against the dealers under the Central Act. Each State Sales Tax Act contains provisions for penalties. These provisions in some cases are also for failure to submit return or failure to regis!er. It is rightly said that those provisions cannot apply to dealers under the Central Act because-the Central Act make~. similar provisions. The Central Act is a self contained code which by charging section creates !iablity for tax and which by other sections creates a liability for penalty and impose penalty. Section 9(2) of the Central Act create.s the State authorities as agencies to carry out the hssessment, reassessment, collection and enforcement of tax and penalty by a dealer under the Act. For these re•asons the appeal of M/s Khemka & Co. is accepted. The answer to the reference by the High Court is discharged. The question is answered in the negative, _viz.,_ that the Tribunal was wrong in holding that penalty could be levied under sectia.1 16( 4) _of_ the Bombay Sales Tax Act, 1953. The appeal of the State of Mysore in ###### Civil Appeal No. 2118 of 1970 is dismissed. The appellant will b.: entitled to costs in Civil Appc•al No. 2089 of 1969. In view of the fact that in Civil Appeal No. 2118 of 1970 the Higi1 Court made no order as to costs, the parties will pay and bear their own costs. MATHEW, J. We take up for consideration Civil Appeal No. 2089 of 1969 and the decision there will govern the decision of Civil Appeal No. 2118 (NT) of 1970~ The questim for consideration in Civil Appeal No. 2089 of 1969 is, whether, upon a correct construction of s.9 of the Central ~)ales Tax Act (hereinafter referred to as the 'Central Act'), it was permissible for the Sales Tax Officer in question to invoke the provisions of s.16 ( 4) of the Bombay Sales Tax Act for imposing penalty for failure by the dealer to pay the sales tax pa)"ablc under the Central Act within the prescribed time. The High Court of Bombay held that the :Sales Tax OfTic,~r had power to impose the penalty under that section and the questio,1 in this appeal is whether the High Court was right. Section 9 of the Central Act, in it·; present form, was introduced in 1969 with retrospective effect from the date of the Act. Sub-section (1) provides that the tax payable by any dealer under the Act on sal-::s of goods effected by him in the course of inter-S [1] ate trade or commerc2 shall be 1 evied by the Government of India and the tax so levied shall be collected by that Government in accorda·ace with the provisions of sub-section (2); and sub-section (2) says : "Subject to the other provisions of this Act and the rules made thereunder, the authorities for the time being empowered to assess, !:!-assess, collect and enforce payment of any tax under the general sales tax law of the appropriate State shall, on behalf of the Government of fadia assess, re-assess, A B #### c D E F G H **A** **B** ### **c** **D** **E** **F** ##### **c** **H** .KHFMKA & CO. _v._ MAHARASHTRA _(Ray,_ _C.J.)_ 767 collect and cnforc~ payment of tax, including any penalty, payable by a dealer under this Act as if the tax or penalty payable by ~uch a dealer under this Act is a t•.:ix or penalty p::iyable und'T the general 'ales tax law of the State: and for this purpose they may exercise all or any of the powers they ha-.·c under the £re•.1crnl soalcs tax Jaw of the State; and the prnisions l1f such law. including provisions relating to returns, provisional assessment, advance payment of tax. reg:,tration of the transferee cif any business, imposition of the tax Jiabilit.y of a person carrying on busi•acss on the transferee of or successor to, such business, tmnsfor of liability of ary firm or Hindu undivided family to pay tax in the event of the dissolution of such firm or petition of such family, recovery of tax from third parties, appeals, reviews, revisions, references, refunds, penalties, compounding of offences a11d treatment of documents furnished by a dealer as confidential shall apply accordingly." Section 16 of the Bombay Sales Tax Act provides for payment and recovery of tax. Sub-section (1) of the section says that the tax shall ·be paid in the maimer thereinaftcr provided at svch intervals as may be prescribed. Sub-section (2) states that before any registered dealer furnishes the returns, he shall, in the prescribed manner, pay into a Government treasury the full amount of the tax due from **him** accord~ ing to such returns. Sub-section (3) provides that before any registered dealer furnishes a revised return wliich shows a greater amount of tax l.o bi;i due than was paynble in accordance with the original return, he shall pay into a Government treasury the extra amount of the tax. Sub-section _(4)_ states tlrnt if the tax is not paid by any dealer within the prescribed time, the dealer shall pay, a penalty in addition to the amount of tax and sub-section (6) enables the realization of tax and penalty as an arrear of land revenue. A careful analysis of s. 9(2) of the Central Act would show that the authorities empowered to assess, re-assess, collect and enforce p2.ymcnt of tax payable under the general sales tax Jaw of the arpropriatc State shall assess, re-asseos, collect and enforce payment ·of, tax including any penalties payable by a dealer under the Central Act 1s if the lax or penalty payable by a dealer under that Act (Ccntr:il Act) is a tax ot' pcnaltv payable under the general sales tax Jaw of the State and for thrit purpose., the authorities may exercise all or any of the powers they have under the general sales tax Jaw of the State. Tn effect, what s. 9 (2) says is that sales tax and pena!lies payabk by a dealer under the Central Act are deemed to be sales tax and penalties payable under the general sales tax law of the State and the sales tax authorities of the State can exercise all or any of the powers they have under the general ~ales tax law ofihe State for the purpose of assessment, re-assessment, collection and for ~nforcing payment of that tax. So, if the sales tax authorities of a State have power, when enforcing payment of sales tax payable under the general sales tax law of the State co impose pc'.rnlty for non-p•;iyment of tax vl!thin the prescribed tnne, they will have a like power to impose i68 SUPREME COURT REPORTS U9751 3 s.c.R. penalty for enforcing payment of the tax payable under the Ce!C1tral A Act within the time prescribed. It was not necessary that power to impose penalty for enforcing the payment of tax payable by a dealer under the Central Act should have been specifically provided in or" conferred separately by the sub-section upon the sales tax authorities of the State, because, the power to enforce payment of tax payable under the Central Act in the same manner as the power to enforce tax payable under the gelljeral sales tax law of the State has been given B. by it. As the power to impose penalty is specifically provided for in s. 16 of the Bombay Sales Tax Act for enforcing payment of tax payable under it, it is unnecessary to speculate whether, but for the express provision in that Act, a power to impose penalty for enfbrcement of tax payable under that Act would have been implied. The object of the provision for the imposition of penalty in s. 16 of the Bombay Sales Tax Act is to provide a stimulant to the dealer to observe the C mandate of the section directing the payment of the tax within the prescribed time .. In other words the provision for imposition of peDtalty in s.16 of the Bombay Sales Tax Act facilitates the collection of tax as it is a sanction for non-observance of the duty to pay the tax within the prescribed time. It operates as a deterrent against the commission of breach of that duty, and is a means to enforce the payment of tax within the time prescribed. D In _C._ _A. Abraham_ _Uppoottil_ v. _The_ _Income_ _Tax_ _Officer(_ _[1]_ _)_ this Court was concerned with the question whether the appellant before the Court who was carrying on business in foodgrains in partnership with another person was liable to a penalty .for submitting the returns of the income o~ the firm even after his. partner's death. It was found that certain iucome of the firm wa~ concealed and the Income E Tax Officer not only assessed the firm to tax for the suppressed income but also imposied penalty for concealing the same. Section 44 of the Indian Income Tax Act, 19220 at the material time stood as follows : "Where any business.... . carried on by a firm ...... has been discontinued ...... every person who was at the time of such discontinuance .... a partner of such firm, shall in respect of the income, profits and gain of the firm be jointly F and severally liable to assessment under Chapter IV for the amount of tax payable and all the provisions of Chapter IV shall, so far as may be, apply to any such assessment." It was contended for the assessee that a proceeding for imposition of penalty and a proceeding for assess~nent of income tax were distinct, that although s. 44 may be resorted to for assessing tax due and G payable by a firm which has discontinued, an order imposing penalty under s. 28 cannot, by virtue of s.44, be passed. The Court said that penalty "is imposable as a part of the machinery for assessment of tax liability". 'The Court quoted with approval the following observations of Subba Rao, C. J. in _Mareddi_ _Krish11a_ _Reddy_ v. _Income-tax_ _Officer,_ _Tenali(2)_ : " .... The defaults enumerated therein (in s. 28) relate H to the process of assessment. Section 28, therefore, is a ### ----- --·----(!) [1961] 2 S.C.R. 765 (2) [1957] 31 I.T.R. _ms._ A B #### c KHEMKA & co. _v._ MAHARASHTRA _(Mathew,_ /,) 7 6 9 ###### provision enacted for facilitating the proper assessment ot taxable income artd can properly be said to apply to an assessment made under Chapter IV .... " The ratio o~ the decision is that penalty is imposed as part of the: machinery for assessment of tax and that the power to assess would include the power to impose penalty for the effective exercise of the power to assess. It is a general principle of law that all powers which are necessary and appropriate to effectuate the main grant of power will be implied, Just as the provision for imposition of penalty under s. 28 of the Income Tax Act, 1922 facilitated the collection of tax as Subba Rao, C. J. has said and ls imposable as part of ·the machinery for assessment of income tax, ##### so also the provision for penalty under s. 16 ot the Bombay Sales Tax Act for non-payment of sales tax within the time prescribed would facilitate the collection of tax and is part of the machinery for enforcing payment of tax. I) E F Jn _Commissioner_ _of_ _Income_ _Tax_ v. _Bhikaji_ _Dadabhai_ _&_ Co.( [1] ) the Income Tax Officer in question found that the books of account of the respondent were unreliable and after assessing the income for the year 1946-47, issued notice to the respondent on December, 22, 1949, under s. 40 of the Hyderabad Income Tax Act to show cause why penalty should not be levied in addition to the tax and, by an order dated 31-10-1951 directed payment of the penalty. The State of Hyderabad merged with the Indian Union during the peadency of the proceedings before the Income Tax Officer and b'y s. 13 of the Finance Act, 1950, the Hyderabad Income Tax Act ceased to have effect from April 1, 1950, but the operation of that Act in respect of levy, assessment and collection of income tax and super tax in respect of the period prior thereto for which liability to income tax should not be imposed under the Indian Income Tax Act was saved. One question before this Court was whether the Income Tax Officer had power on October 31, 1951 to impose penalty under s. 40(1) of the Hyderabad Income Tax Act. The Court held that the power of the Income Tax Officer to impose penalty under s. 40(1) of the Hyderabad lnC'Ome Tax Act in respect of the years preceding the date of the repeal of that Act was not lost because by s. 13 of the Finance Act, , 1950, the operation of the Hyderabad Act in respect of levy, assessment and collection of income tax and super tax in respect of the period prior to April 1, 1951 was saved and therefore the proceedings for imposing the penalty could be continued even after the enactment of s. 13(1) of the Indian Finance Act, 1950. G The real significance of the ruling for the point under consideration here is that at the time when the penalty was imposed, the only provisions of the Hyderabad Income Tax Act which survived the repeal - were those relating to levy, assessment and collection of income tax and super tax in respect of the period prior to April 1, 1951 and un. less the power to impose the penalty was included within the power H to levy, assess, or collect the tax, the imposition ·of oenalty would have been _ultra_ _vires_ the power of the Income. Tax Officer. (I) [1961] 3 S.C.R. 923. 3-564SCl/75 770 SUPREME COURT REPORTS [19751 3 s.c.R. In _Orissa_ _Cement_ _Limited_ v. _The_ _State_ _of_ _Orissa_ _&_ _A nother(I),_ the question was whether a dealer under the Central Act could claim the benefit of s. 13(8) of the Orissa Saks Tax Act, 1947, whkh prcvided that rebate of one per cent on the amount of tax payable by a dealer shall be allowed if such a tax is paid by the dealer ·on or before the due date of payment, by virtue of s. 9 (3) (as it stood then) of the Central Act. This Court said that the rebate was offered to facilitate, expedite and stimula.te the collection of tax an'd was part of the process of collection and that the appellant-dealer who paid the tax on the due date wa~ entitled to the rebate. If rebate can be given on the basis that it would facilitate, ex.pedite and stimulate the collection of tax, we see no reason why a penalty cannot be imposed to expedite, facilitate and stimulate the collec!ion of tax and as part of the process of collection. It is said that penalty is the imposition of a liability and is substantive in character whereas rebate is a concession and is part of the procedure. We are not clear whether this is a distinction at all. Payment of rebate is a liability frcm the point of view of the Revenue, though it is concession from the point of view of the assessee. If penalty is levy of money on an assessee, rebate means . payment of _money t'O an assessee. What then is the differen:e? No body has yet succeeded in drawing the precise line between a procedural and substantive provision and in this case we do not think we are required to do so for the simple reason that we are only concerned with the question whe-. ther for the purpose Qf enforcing the payment of tax payable under the Central Act, the authorities 'Of the State can exercise all the powers they have under the gee.era! sales tax law of the State whether one characterizes them as procedural or substantive. It is difficult to imagine that Parliament, wlien it enacted s. 9(2) of the Central Act and adopted the machinery of the general sales tax law of the State fol" enforcing payment of tax payable und1~r the Central Act, did not want to avail of the sanction of penalty for enforcing the payment of it which the general sales tax law of the State provides for enforcing payment of tax due under that law. We find it difficult to hold that Parliament invested the state authorities with power to assess, re-assess, collect and enforce payment 'Of tax payable under the Central Act as if the tax is tax payable under the general sales tax law of the State, but denuded them of their power to invoke the provision in the general sales tax law of the state for imposition (I) _27_ S.T.C. 118. A B ##### c D E F G # ' H A B ##### c D E F G H KHEMKA & co. _v._ MAHARASHTRA _(Mathew,_ _J.)_ 771 of penalty for enforcing payment of the tax payable thereunder, as that is an effec'tive means to the enforcement of payment of tax within the prescribed time. It was contended that only the pena!ties expressly provided for in the Central Act could be imposed by the sales tax authorities of the State by employing the machinery for collecti'on of tax under the general sales tax law of the State and that no penalty which is not provided for by the Central Act could be imp'osed by the State authorities. In this connection, the appellant placed great reliance upon the decision of a Division Bench ·of the Calcutta High Court in _Mohan_ question _Lal_ there _Chokhany_ was whether penalty v. _The_ _Conunercial_ can be imposed _Tax_ for _Officer(!)._ failure I to sub- The mit the return bY a dealer under the Central Act though only the general sales tax law of the State provided for it. The Court came to the· c-onclusion that no penalty can be imposed. For doing so, the Court said : firstly, that by s. 9(2) of the Central Act, the whole State" are limiting words, viz., for the enforcement of tax and the penalries specified in the Cen•ral Act We do not understand how the analogy of principal and agent has any relevance in this context. If the power of enforcem 'nt of payment (I) 28 S.T.C. 367. machinery provided in the .general sales tax law of the State has not been incorpprated in the Central Act; secondly, that the authorifa:s for the time being empowered to assess, re-assess, collect and enforce payment of any tax unaer the general sales tax law ·of the appropriate State are only so empowered "on behalf of the Government of India" suggesting thereby that the Government of India is to be the principal and the State only the agent and that the agent can have no greater power than the principal himself, so that if the principal has no pm1·.;r tu impose penalty for non-submission or delayed submission of returns, the State, "on behalf of the Government of India", cannot impose such penalty, thirdly, thats. 9(2) speaks only of penalty payable under . "this Act" (Central Act) and not of any penalty payable under State law; fourthly, th•at the power of state authorities is qualified by the words "as if the tax or penalty payable by such a dealer under this Act is a tax or penalty payable under the general sales tax law of the State", that this is the deeming provision and can deem no more than what it says, namely, that the "penalty payable under this (Central) Act", and not any other penalty, will be deemed 'as if' payable under the general sales tax law of the State; and, fifthly, that the expressions in s. 9(2) of the Central Act "for this purpose they may exercise all or . any of the. powers they have under the general sales tax law of the 772 SUPREME COURT REPORTS [197 SJ 3 5, C.R. of tax payable under the Central Act. conferred on_ the au~hori~ies of the State would include the power to mipose penalties provided m the general sales tax law of the _State, there i? an end o~ the matter. 'P1e whole fallacy in the reaso~mg _?f_ the High. Court 1s the .assumption that only the penalties provided m the Central Act can be imposed by the authorities by using the machinery of the sales tax law of !he State as they alone are specifically mentioned in s. 9(2) and in ignormg what B are the powers actually conferred by the words "enforce P.aymen~ of . tax .... as if the tax .... payable by such a dealer under this Act is a tax ...... payable under the general Sales tax law of the State"', in the sub-section. The marginal note of s. 10 of the Central Act is 'penalties' and the section enumerates six grounds for imposing penalty from (a) to (f) : (a) ·failure of a dealer to get himself registered as required by s. 7; (b) a registered dealer falsely representing when purchasing any clas" of goods that the goods of such class are covered by his certifkate of registration; (c) not being a registered dealer, falsely representing when p;urchasing goods in the course .of inter-state trade or commerce that he is a dealer, (d) after purchasing any goods for any of the purposes specified in clause (b) of sub-section (3) of s. 8, failing without reasonable excuse to make use of the goods for any such purpose; (e) havi!Jg in his possession any form prescribed for the purpose of sub-section ( 4) of s. 8 which has not bi:en obtained by him in accordance with the provisions of the Act or any rules made thereunder; and (f) collecting any amount by way of tax in contravention of the provisions contained in s. 9A. When a person comes within any 0£ these six grounds he shall be punishable with simple imprisonment which\ may extend to six months or with fine or with both and when the [1],offence is a continuing offence, with a daily fine which may exten" to Rs. 50 per day during which the offence continued. Sub-section ( 1) of s. lOA provides that if any person purchasing goods is guilty of an offence under clause (b) or clause (c) or clause (d) of s. 10, the authority who granted to him or, who is competent to grant to him a certificate of registration under the Act may, after giving him a reasonable opportunity of being heard by order in writing, impose upon him by way of penalty a sum' not exceeding one-and-a-half times the tax which would have been levied und1!r sub-section (2) of s. 8 in respect of the sale to him of the goods if the sale had been a sale falling within t!iat sub-section. Sub-section (2) says that penalty imposed· upon any dealer under sub-section (l) ~hall be co~lected by the Government of India in the manner provided m sub-section (2) of s. 9. It is clear from s. 9(2) that the penalties which can be imposed by the State authorities by virtue of the express provision in· it are th;! penalities provided in section 10 read with s. lOA. The fact that s. 9(2) expressly authorizes the sales tax authorities of the State to #### c D E F G H A B. ###### c D E F G H KHEMKA & co. _v._ MAHARASHTRA _(1\tluthew,_ /,) 77 3 ip.1pose the pen_alties payabie by a dealer under the Central Act by employing the machinery of the general sales tax law of the State does not mean that they have no power to enforce payment of tax payable under the Central Act by imposing penalty as provided in the general sales tax law of the State. As we said, by virtue of s. 9 ( 2), the machinery provided in the general sales tax law of the appropriate State for assessment, reassessment, collection and enforcement of payment of tax payable under the Central Act has been adopted and that machinery necessarily includes the means and facilities provided in that law for the effective exercise of the power to assess, re-assess, collect and enforce payment of tax; and, therefore, the absence of an express provision in the Central Act for imposition of penalty for nonpayment of tax within the prescribed time would not i.ndicate that for enforciag payment of tax payable under the Central Act, the authorities of the State have no power to impose the penalty. When s. 9(2) says that assessment, re-assessment, collection and enforcement of payment o~ tax due under the Central Act should be made by the authorities of the State as if the tax payable under that Act is tax payable .under the general sales tax law of the State and for that purpose "they may exercise all or any of the powers they have under the sales tax law of the State", there can be no manner of doubt that if, for enforcing payment ~f tax due under the sales tax law ·of the State, they have power to impose penalty, they have the same power of imposing penalty for enforcing payment of tax payable under the Central Act. The express provision in s. 9(2) enabling the imposition of penalties payable under the Central Act by the sales tax authoritir ~ of the State does not in any way derogate from the grant of power to those authorities to enforce the payment of tax payable under the; Central Act as if the tax was payable under the general [1] sales tax Jaw of the State and to enforce payment of it under the machinery of the general sales tax law of the State. The reason why the sales tax authorities of the State were given specific power under s. 9(2) to epforce the penalties payable by a dealer under the Central Act is that those penalties were not and perhaps could not have been provided for in the sales tax law of the State. The penalties provided for in s. 10 read with s. lOA of the Central Act are not for the purpose of or in connection with assessment, re-assessment, collection and enforcement of payment of tax payable by a dealer under the Central Act and could not have been imP'osed by the sales tax authorities of the State in making assess'ment, re-assessment, collection or in enforcing payment of the tax payable under· the Central Act. Therefore, express power had to be conferred upon the sales tax authorities of the State to enforce the penalties payable by a dealer under the Central Act. This does not mean that these authorities have no power to impose the penalties provided in the general sales· tax law of the State and which are necessary to make power of assessment, re-assessment, collection or en;forcement of payment of tax effective. How could these penalties have been separately prnvided for in the Central Act when it is seen that the sales tax authorities of the State were given power to assess, reassess, collect and enforce payment o~ tax payable under the Central Act as if that tax were tax payable under the general sales tax law of the State and to exercise all or any '774 SUPREME COURT REPORTS l1975l 3 s.c.R. of the powers they have under the sales tax law of the State for that purpose ? Parliament must be presumed to know when it adopted the machinery of the general sales tax law of the State for assessment, re-assessment, collection and enforcement of tax payable under the Central Act, the existence of the provisions for imposition of penalty in connection with and for the purpose of assessment, reassessment, collection and enforcement cf payment of tax in the sale tax law of the State. Therefore, there was no necessity to provide separately for pe:nalties in connection therewith in the Central Act or give express power to sales tax autlrorities of the State for imposition of penalties in connection therewith. If, in the process of or for the purpose of assessment, reassessment, collection and enforcement of payment of tax pa.yable under the sales tax law of the State, a penalty can be imposed, we do irot understand why it cannot be imposed in the process of or for the purpose of making the assessment, re-assessment, collection or enforcement of payment of tax payable under the Central Act. Is it possible to imagine any reason for Parliament to withhold from the saks tax authorities of the State an effective means for enforcing the payment of tax payable under the sales tax law of the State and which is specifically provided for in that law for collection of tax payable under the Central Act? We think not. As we said, in the nature and the scheme of the Central Act, it was not necessary to provide for imposition of penalty or for the other methods of enforcing the payment ·of tax payable under the Central Act since Parliament has adopted the machinery provided in the general sales tax law of the State as respects enforcement of the tax payable under the Central Act. The decisions in _B._ _H._ _Shah_ _&_ _Co._ v. _The_ _State_ _of Madras(!),_ _The_ _Swte of Madras_ v. _M._ _An gap pa_ _Chettiar_ _&_ S~ns (2), _Guldas_ _Narasappa_ _Thimmaiah_ _Oil_ _Mills_ v. _Commercial_ _Tax_ _Officer,_ _Raichur(_ _[3 ]_ _)_ and _Hardatroy_ _Jute_ _Mills_ _Pvt._ _Ltd._ v. _Superintendent of Commercial_ _Taxes._ _Pumea(4)_ relied on by the appellants do not require any elaborakconsideration as they do not advance any reasons other than thrn;e already referred !o in this judgment. The reasoning of the Madras High Court in _B._ _H._ _Shah_ _&_ _Co.'s_ case to the effect that Parliament could, not ~ave adopted by s. 9(3) ·of the Central Act (substariti{tlly correspondmg to present s. 9(2) of the Central Act) a provision o.f the general sales tax law of the State which was not in existence at the time of the enactment of s. 9(3) has no relevance here. . The appellant did not contend . that the provision in question for imposi.tion of penalty in the general sales tax law of the State was not in,existence at the relevant time and therefore they could not in any event h'!ve been adopt1~d by s. 9(2). Wt- do not therefore think it necc.,sary or proper to consider the question whether Parliament can b'y legislation adopt a State law and the future amendments thereto. Jt was argued that the expression 'penalties' occurring in the latter ~art of s. 9(2) must refer to the penalties mentioned in the former part (I) 20 S.T.C. 146.. (2) 22 S.T.C. 226. (3) 25 S.T.C. 489. (4) 30 S.T.C. 151. A B ### c D E F G H A B #### c D E F G H . KHEMKA & CO,, _v._ MAHARASHTRA _(Mathew,_ J.) \ 775 cf the sub-section, namely, penalties payable by a dealer under the Central Act. We see no reason why the expression 'penalties' in the laiter part of the sub-section should refer to the penalties payable by a dealer under the Central Act at all. The expression 'penalties' in the latter part of the sub-sec!ion can only refer to penalties imposable under the rreneral sales tax law of the State in connection with assessment, rcas;-essmcnt, collection and enforcement of payment of tax. The. latter part of the sub-section only enumerates some of the powers exercisable by the sales tax authorities of the State to assess, reassess, collect and enforce payment of tax payable under the Central _Act._ The language of the sub-section beginning with "and for this purpose they may exercise all or any of the powers they have under the general sales tax Jaw o~ the State; and the provisions of such law, including rrovisi·ans relating to returns, provisional assessment, advance payment of tax ........ appeals, reviews, revisions, references, refunds, penalties. . .. " makes it clear that the word 'penalties' occurring therein. can refer only to penalties provided in the general sales tax law of the State. Jn other words. the express mention of the power to impose 'penalties' among the enumerated powers beginning with the words "and the provisions of such Jaw including the provisions relating to ...... p~nalties" would put it beyond doubt that the word 'penalties' in the latter part of the sub-section can only refer to penalties imposable under the general sales tax law of the State in relation to assessment, reassessment, collection and enforcement of payment of, tax payable thereunder. We hold that the Sales Tax Officer was empowered to impose penalty provided in s. 16 _(_ 4) of the Bombay Sales Tax Act for non-payment of the tax payable under the Central Act within the prescribed time. We would dismiss Civil Appeal No. 2089 _·af_ 1969 and allow Civil Appeal No. 2118 (NT) of 1970 without any order as to costs. I3EG, J .-Civil Appeal No. 2089 of 1969 arises out of an assessment ordi;-r relating to the period of assessment from 1-4-1959 to 30-12-1959. The order purports to have been made under the Central Sales Tax Act o.f 195 6 (hereinafter referred to as the 'Central Act') and the assessment year given there is 1962-63. The total sales tax was assessed at Rs. 44, 181.92. In addition, a penalty of Rs. 8347.32 was levied for delay in payment. The order passed on the appeal to the Assistant Commissioner of Sales Tax shows that the only point pressed in the appeal related t-o the penalty levied under Section 16(4) of the Bombay Sales Tax Act of 1953, (hereinafter referred to as 'the Bombay Act of 1953'). As the appeal was rejected, a revision application was filed before the Sales Tax Tribunal. Bombay, which also upheld the penalty imposed under Section 16(4) of the Bombay Act of 1953. This provision laid down: "16(4) _)f_ the tax is not paid by any dealer within the prescriocd time the dealer shall pay, by way of penalty in addition to the amount of tax, a sum equal to (i) one percent of the amount of tax for each month for the first three 776 SUPREME COURT REPORTS l1975J 3 s.c.R. months after the expiry 'Of the prescribed time, and (ii) two and one-half per cent .for each month subsequent to the first three months as aforesaid during which he continues to make default in the payment of the tax. Provided that, where the tax has not been paid by any dealer within the prescribed time but the dealer has filed an appeal or an application for revision in respect of such tax, the authority hearing the appeal or the application for revision may direct that the penalty in respect of any period shall be paid at such rate as it may think fit, the rate being not less than one per cent and not more than two and one half per cent of the amount of tax for each month". The High Court had, upon a reference to it, decided in favour of the Department the question framed as follows : "Whether having regard to the facts and circumstances o.f the present case which is under the Centni.l Sales Tax Act, 1956, the Tribunal was justified in law in holding that . penalty could be levied under Section 16(4) of the Bombay Sales Tax Act, 19 5 3 ?" In the appeal now before us by special leave it has been contended for the assessee that the penalty was levied without jurisdiction as it was not warranted by the provisions of Section 9(2) of the Central Act, 1956. A B #### c D Civil Appeal No. 2118 of 1970 arises out of an assessment order relating to the assessment year 1964-65 under the Central Act for a E sum of Rs. 14,332.80 np. and a penalty 'Of Rs. 10,104.36 ps. levied for default in the payment of penalty imposed under Section 13 of the Mysore Sales Tax Act of 1957, (hereinafter rderred to as 'the Mysore Act'), which was assumed to be applicable by reason of· Section 9(3) of the Central Act. The relevant provision of the Mysore Act lays down : _"Payment Md_ _recovery_ _of_ _tax_ (1) The tax under this Act, shall be paid in such manner and in such instalments, if any and within such time, as may be prescribed. (2) If default is made in making payment in accordance with subsection (1) : (i) the whole of the amount outstanding on the date of default shall become immediately due and shall be a charge on the proper tie~ uf the person or pers·ons liable to pay the tax under this Act; and (ii) the person or persons liable to pay the tax under this Act shall pay a penalty equal to (a) one per cent of the amount of tax remaining unpaid for each month for the first three months, after the expiry of the time prescribed under sub-section ( 1) and F G H A B #### c _D_ E F G H KHEMKA & CO, _V,_ MAHARASHTRA _(Beg,_ J.) 777 (b) two and one-half per cent o,f such amount for each month subsequent to the first three months as aforesaid. (3) Any tax assessed, or any other amount due under this Act from a dealer, may without prejudice to any other mode of collection, be recovered ( a) as if it were an arrear of land revenue, or (b) on applicati'On to any Magistrate, by rnch Magistrate as if it were a fine imposed by him .... " In this case, the Commercial Tax· Officer, Raichur, filed application under Section 13(3)(b), of the Mysore Act before the Munsif Magistrate of Raichur for· recovery qf the sum due as penalty as if it was a fine imposed by the Court. The Munsif Magistrate having issued a distress warrant for recovery of this sum, the assessee applied to the High Court under Section 13(4) of the Mysore Act which reads as follows : "The High Court may either suo motu or an application by the Commissioner or any person aggrieved bY the order revise any order made by a Magistrate under clause (b) of sub-section (3)''. Thereafter, the assessee filed a Writ Petition which was heard together _wjth the Sajes Tax Rev!sio_n petition. The High Court had allowed the assessee's claim that the levy of penalty was ultra-vires. The State of Mysore had, therefore, come up in appeal by special leave to this Court. I have had the advantage of going through the judgments of the learned Chief Justice and my learned brother Mathew. Even if I was of the opinion that two views on an interpretation •of Section 9(2) of the Central Act are equally well entertainable, as one could be on a mere reading of Section 9(2) of the Central Act only, I would, with great respect, prefer the view adopted by the learned Chief Justice on the principle that the assessee must get the benefit of such uncertainty. It, however, seems to me, on a careful consideration of the two possible views, that reasons for accepting the contentions on behalf of the assessee are quite compelling and decisive, I, therefore, proceed to ~tate these shortly. So far as the case from Bombay is concerned, I find that Section 76(a) "Of the Bombay Sales Tax Act of 1959 (hereinafter referred to as 'the Bombay Act of 1959'), repeals· the Bombay Act of 1953. Section ·16 of the Bombay Act of 1959 refers to an entirely different subject matter. Provisions relating to penalties are contained in Section 36 to Section 38 of the Bombay Act ·af 1959, which have been amended from time to time. In any case, there wa.s no provision, at the time when the assessment order was made, for imposition of any penalty under Section 16(4) of the Bombay Act 'Of 1953, which the Sales Tax authorities and the High Court sought to utilize to justify the penalty imposed. 778 SUPREME COURT REPORTS 09751 3 s.c.R. Relying upon the principles indicated by this Court in _Re_ _Delhi_ _Laws_ _Act_ (1912) etc.,(1) I think one could say that in 1956 the Parliament couJ.d not have applies its mind to provisions which came into existence afterwards. lt could not, therefore, have incorporated them by reference as parts of· a procedure applicable to assessments which took place, after 1959 when the Bombay Act of 1953 was repealed. At the time of the passing ·of the Central Act, the relevant statute in existence in Bombay was the Bombay Act of· 1953. But, Section 16(4) of the Bombay Act of 1953 under which the Sales Tax authorities purported to act, did not exist on th~ statute book at the time of assessment. Unless we assume that Section ·9(2) of the Central Act, by a necessary implicati'on, authorises the State Legislatures to go on imposing such penalties for such brcac~es of duty as it pleases them to lay down on behalf of Parliament, subsequently enacted provisions of State enactments would not be available. I also find from the Mysore A<:t of 1957, that Section 13 of the Act was entirelv re-cast in 1958. It would, I think be carrying the theory of referential legislation too far to assume that Section 9(2) of the Central Act 1956 purported to authorise the State Legislatures to impose liabilities in the nature of additi'onal tax or penalties kaving their rates and conditions for their imposition also to be determined by the State Legislatures as and when the State Legislatures decided to impose or amend them. It is evident that these differ from State to State. and, in the same State, at different times. A rnnfrrment of such ·an uncontrolled' power upon the State Legislatures could, if it was really intended. be said to travel beyond the province of permissible delegated legislation on the principles laid down !long ago by this Court in _Re-Delhi Laws'_ case (supra) as no guide lines are l'iven in Section 9(2) about the nature, condifrons, or extent of pena'ities leviabk. H such a power was really conferred would it ·not amount to an abdication of an essential legislative function with respect to a matter found as item 92A of the Union List I of the Seventh Schedule so that, accwding to article 246(1) of our Constitution. Parlimnent has exclusive power to legislate on a topic covered by it ? As this question was not argued before us I would only say that the correct cannon of construction to apply in such a case is that we sh'Ould so interpret Section 9(2) of the Central Act, if possible, that no part of it may conceivably be invalid for excessive delegation. The well known maxim applicable in such cases is : _ut_ _res_ _magis_ _\'(l/t?i/[_ _f{lli/11! p<'I_ fa/. It is evident from Section f6E4> of the Bombay Act of 1953_ :that there is a particular percentage of ·f!le amount .of tax levied which is prescribed as penalty to be paid as an "additi'on to the amount of tax for every month after the expiry of the prescribed period of default"_ In other words, it is a liability itl the nature of an additional or penal tax. Section l 3(3)(b) of the Mysore Act also makes it clear that, on an application made to the Magistrate, such as the one made in the case which has come up before us from Mysore, the penalty may be equated with a fine. Section 63 of the Bombay Act (l) [1951] S.C.R. 747. A B ##### c D E F G H A B #### c _D_ .E 'F G H KHEMKA & co. v; MAHARASHTRA _(Beg,_ /.) 779 of 1959 speaks of certain "offences and penalties". Indeed, Chapter 8 of that Act is itself headed as "Offences and Penalties". On a consideration of the provisi'Ons mentioned above, it seems ###### to me to be clear that whatever may be the objects of levying a penalty, its imposition gives rise to a substantive liability which can be viewed either as an additional tax or as a fine !'or the infringement of the law. The machinery or procedure for its realizatron comes into operation after its imposition. In any case, it is an imposition of a pecuniary liability which is comparable to a punishment for the commission of an 'Offence. lt is a well settled cannon of construction of statutes that neither a pecuniary liability can be imposed nor an offence created by mere implication. It may be debatable whether a particular procedural provision creates a substantive right or liability. But, I do not thinR that the imposition of a pecuniary liability, which takes the form of a penalty or fine for a breach of a legal obligation, can be relegated to the region of mere procedure and machinery for the realization of tax. It is more than that. Such liabilities must be created by clear, unambiguous, and express enact ment. The language used should leave no serious doubts about its effect so that the persoris who are to be subjected to such a liability for the infringement of law arc not left in a state of uncertainty as to what their duties or liabilities are., This is an essential requirement of a good government of laws. It is implied in the constitutional mandate found in Section 265 of ·our Constitution : "No tax shall be levied or collected 1except by authority of law". It was argued on behalf of the State that Section 9(2) of the Central Act contains an express reference to provisions relating to, inter;;;lia, "refunds, rebates, penalties, compounding of offences". Relying upon these words in the last part of Section 9(2) of the Act,. it was urned that there is no manner of doubt that the penalties' leviable under the State law can be utilised for the purpose of enforcing the tax liabilities under the Central Act. Section 9 of the Central Act itself has undergone several amendments. In 1956 it sto'Od as follows : "9( l) The tax payable by any dealer under this Act shall be levied and collected in the appropriate State by the Government of India in the manner provided in sub-section (2). (2) The authorities for the time being empowered to assess, collect and enforce payment of any tax under the genei-al sales tax law of the appropriate State shall, on be half of the Government of India and subject to any rules made under this Act, assess, collect and. enforce payJ!1ent of any tax payable by a' dealer under this Act in the same manner as the tax on the sale or purchase of goods under the general sales tax law of the State is assessed, paid and collected; and for this purpose they may exercise all or any of the powers they have under the general sales tax law of the 780 SUPREME COURT REPORTS fl 97 51 3 s.c.R. State; and th1~ provisi:ons of such law, including provisions relating to returns, appeals, reviews, revisions, references, penalties and compounding of offences, shall apply accordingly. (3) The proceeds (reduced by the cost of collection) in any financial year of any tax levied and collected under this Act in any State. on behalf of the Government ·of India shall, except in so far as those proceeds represent proceeds attributable to Union territories, be assigned to . that State and shall be retained by it; and the proceeds attributable to Union -territories shall form part of the Cons·o!idated Fund of India". It was amended by Act 31 of 1958, and Act 29 of 1969, and Act 61 of 1972. We are only concerned here with the amendment by Act 31 of 1958 because this Act introduced the provisions which were in operation at the time when the assessment orders under con .. sideration were made. Section 6 of the Central Sales Tax Second Amendment Act 31 of 1958 changed Section 9(2) and (3) and introduced sub-s. (4). These provisions read as follows : "(2) The penalty imposed upon any dealer under section 10-A shall be collected by the Government ol' 1ndia in the manner provided in sub-section (3) : (a) in the case of an offence falling under clause (b) or clause (d) of section 10, in the State in which the person purchasing the goods obtained the form prescribed for the purposes of clause (a) of sub-section (4) ·of section 8 in connection with the purchase of such goods; (b) in the case of an offence fallin_g under clause (c) of section 10, in the State in which the pcrs"n purchasing the goods should have registered himself if the offence had nut peen committed. (3} The authorities for the time being empowered to assess, collect and enforce payment of any tax under the general sales-tax law of the appropriate State shall. on behalf of th~ Government of India and subject to any rules made under. this Act, assess, collect and enforce payment of any tax, including any penalty, payable by a dealer under this Act in the same manner as the tax on the sale or purchase of goods under the general sales tax law of the State is assessed paid and collected; and for this purpose they may exercise all or any of the powers they have under the general sales-tax law of the State; and the provisions of each law, including provisions relating to returns appeals, reviews, revisions, references, penalties and compounding of offences, shall apply accordingly : ' A B #### c D E F• G H B ### c I) E F G H KHEMKA & CO. _V,_ MAHARASHTRA _(Beg,_ J.) 781 Provided that if in any State or part thereof there is no ge.;eral sales-tax la\v in force, the Central Government may, by rules made in this behalf, make necessary provision for all or any of the matters specified in this sub-section and such rules may provide that a breach 0£ any rule shall be punishable with fine which may extend to five hundred rupees; and where the offence is a continuing offence, with a daily fine which may extend to fifty rupees for every day during which the offence continues. ( 4) The proceeds in any financial year of any tax including any penalty, levied and C'Ollected uncl.er this Act in any State (other than a Union territory) on behalf of the Gover~ment of India shall be assigned to that State and shall be retained by it; and the proceeds attributable to Union territories shall form part of the Consolidated Fund of lndja". It will be seen that Secti'On 9(1) of the Central Act 1956 provided only for "the manr1er" of levy and assessment as provided in Sec. 9(2). Again, the new Sec. 9(2), introduced by Act 31 of 1958, empowered the Government o.f India only "to collect" the penalties mentioned in Sec. lOA of this Act "in the manner" laid down in Sec. 9(3). It is. clear that Section 10, relating to the penalties provided by the Central Act, was meant for penalties by way of imprisonment and fine. Section lOA provided only for levy of certain penalties at the rate specified there in lieu of prosecutions under St'.c. 10. This is the only kind of penalty which was enforceable by the procedure laid down in Section 9(3) of the Act as it stood after the 1958 amendment. Section 9(2), after the Act 31 of 1958, also makes it clear that Section 9(3), which corresponded to the earlier Section 9(2) of the 1.956 Act only lays down "the manner" of this "collection" of the penalty. In other words, Sec. 9(2) 'Of the Act, as it stood after 19.58, did not provide for an imposition of a penalty as a substantive pecuniary liability or tax. It only authorised collection of penalty in the manner laid down in Section 19(3) of the Central Act as it stood after 1958. The imposition of a penalty was regulated exclusively by Sec. lOA of the Central Act and not by any provision of the State Act. It has to be remembered that Section 9(2) of the 1956 Act, which corresponds to Section 9(3) after 1958, begins with : "subj.ect to the other proyisions of this Act and the rules made thereunder, the authorities for the time being empowered to as~ess, re-assess, collect and enforce payment of any tax under the general sales tax law· of the appropriate State shaH .... ". In other words, the powers of the State Sales Tax Officers are specifically limited by the provisrons of the Central Act. They cannot go beyond these provisions. The next part of Section 9(2) of the 1956 Act further emohasises this aspect by making it clear that these powers are exercisable only "for this purpose". In other words, they are not authorised too collect dues for purposes extraneous to the Central Act. We may then go to the last part of Section 9(2) of the 1956 Act, which is strongly 782 SUPREME COURT REPORTS rl 97 51 3 s.c.R. relied upon on behalf of the States concerned, to urge that the State provisions relating not merely to collection of taxes but imposition of penalties are incorporated by reference il1!o the provisions ·of the Central Act. fn this debatable area, I think the true meaning can only be found by considering the provisions as a whole. The context .of the whole sales tax law of the State as well as that of the law contained in the Central Act must be taken int·o account. After considering the provisions of the Central Act as well as the State Acts relating to penalties, one is irresistably driven to the conclusion that provisions relating to penalties are special and specific provisions in each Act. They arc not part of "the general sales tax law" ·of either the State or of Union. If the provisions relating to penalties, such as those found in the Central Act and the Stat..: Acts, arc really special provisions -.yhich can be invoked in the special circumstances given in each statute, we must interpret the reference to penalties in the concluding portion of Section 9(2), preceding th.o proviso; to relate only to the special provisions relating to penalti:es provided for specifically in the Central Act. I. think that the maxim of interpretation to apply here is : _"Exprrssiu U niw;_ _exc/11sio_ _a/terius"._ This is explained as follows in _'vfaxwrll_ on the _Interpretation of Statutes_ (12th Edn. p. 293); .. By the rule usually kn'own in the form of this Latin Maxim, mention of one or more things of a particular class may be regarded as silently excluding all other members of the class; _expres.111111_ _facit_ _cessare_ _wcitwn''._ No doubt this maxim has been described as "a useful servant hut a dangerous master". I can, however, think of no kind of case more apt for its applicafron than the one before us. As the Privy l.ouncil said long ago, with regard to a -statute purporting to impose a charge in _Oriemal_ _Bank_ _Corporation_ v. _Wright,_ (1) that in such a case, the rule to be applied is "that the intention to impose a charge upon the subject. must be shown by clear and unambiguous language". If the language leaves room for coming to the conclusion that only penalties specified _iv._ the Central Act. are enforceable by tt1c machinery for enforcement of liability under the general Sales Tax Jaw of a State, I think that the legislative intent could safely be presumed to be to C'Onfine penalties mentioned in the concluding part of Section 9(2) to only those mentioned specifically in the Central Act. A B #### c D E F For the reasons given above, I respectfully concur with the opi· nion expressed and the orders proposed by My Lord the Chief Justice. _C.A._ 2089 _of_ 1969 _allowed._ _C.A._ 2118 _of_ 1970 _dismissed_ H P.B.R: (I) (1880) _5_ App. Cas. 842 at 256.