Union of India v. H. S. Dhillon

.• A **B** c **D** E .G . _**H**_ ·~ .. 33 **UNION** **OF INDIA** _v._ **H.** **S.** **DHILLON** _October_ 21, 1971 [S. M. S1KRI, C.J., J.M. SHELAT, A. N. RAY, I. D. DuA, S. C. RoY, D. G. PALEKAR AND G. K. MITTER, JJ.] _Constillltion_ _of_ _India,_ 1950, _Arts._ 246, 248, _List_ /, Sev~ntlz. _Schedule,_ _**entries**_ **86** _**and**_ **97,** _**and List**_ _**JI,**_ _**entry**_ _**49-Scope**_ _**of-;-:Enqllll'Y**_ _**uzto**_ sc~pe _**of**_ _**residuary**_ _**powers-Nature**_ _**of-'An}'**_ _**other**_ _**niatter**_ _**ill**_ _**entry 97,**_ _**n1ea111ng**_ _of._ _Wealth Tax Act,_ 1957, _as_ _amended_ _by_ _s._ 24, _Finance_ _Ac_t,_ 1969_Comvetencv_ _of_ _Parliameiit_ _to_ _enact-If_ _fa/ls_ _unda_ _entry_ 49. _List_ //. Section 3 of the Wealth Tax Act, 1957, imposes a tax on the c.apital value of the net wealth of an assessee. Net wealth, under the Act, JS the amount by which the aggregate value of all assets of the assessee, computed in the manner provided by the Act, is in excess of the aggregate value of all debts (subject to some exceptions) owed by the assessee; and assets, under s. 2(e) as it originally stood, meant generally property of every description but not including agri.cultural land, &rowmg crops, grass or standing trees on such land. Section 24 of the Fmance Act, 1969, amended s. 2(e) of the Wealth Tax Act and included agricultural land etc., in **thC** **assessee's** **assets** **for** **the purpose** **of** **computing his net wealth.** The High Court held that the amendment was beyond the legislative competence of Parliament. In appeal to this Court, on the questions : ( 1) whether such a tax on agricultural land could be imposed only by the States under entry 49, List II, Seventh Schedule to the Constitution, dealing with 'taxes on lands and buildings'; and (2) whether the object of specifically excluding agricultural land from the scope of entry 86, List I, was also to take it out of the ambit of entry 97, List I, and Art. 248, dealing with residuary powers of **ParJiament.** HELD: _(Per_ S. M. Sikri, C.J., S. C. Roy, D. G. Palekar and G. K. Mitter, JJ.) : The amendment is valid. [75 G] _(Per_ S. M. Sikri, C.J., S. C. Roy and D. G. Palekar, JJ.) : (I) (a) Article 248 of the Constitution provides that Parliament has exclusive power to make any law with respect to any matter not enumerated in List II or List III and that such power includes the power of makinl( any Jaw im~ing a tax not 11_1entioned in those Lists. Under entry 97, List I, Parliament has exclusive power to make laws with respect to _any_ _other_ !"at~er not enumer~ted in Lists II or III including any tax not mentioned 10 either o.f. t~ose Lists. The scheme of distribution of legislative powers in the Const1tut1on !lamely, Arts. 246 ~nd 248 and entry 97, List I, shows .that any matter !ncludmg a tax, ~h1ch has not been allotted exclusively to the ~tale Legislat~rc~ un.der 1:-1st II, or concurrently with Parliament unc!~r List III, ~all.s w1th10 Ltst I, 10clud1~g entry 97 of that List read with Art. 248.,If t~1s IS the .true scope of residuary powers of Parliament. then ~hen dealmg with a Central Ac~ the only enq?iry is whether it is legislation 10 respect of any matter m List,II, for, this 1s the only field rel(arding w'1ic!t •there is a prohibition against Parliament. If a Central Act d0es not 34 SUPREME COURT REPORTS (1972] 2 S.C.R. enter or invade. these prohibited fields there is no point in trying to decide A a.s to under which entry or entries of List I or List Ill a Central Act would rightly fit to. 1.46F; 47F-G; 61D, E] _Gift_ _Tax Officer_ v. _Nazareth,_ [1971] I S.C.R. 195,. 200. (b) This is the test that had been applied in interpreting the Canadian Cons!Itut10n and ~I?ce the scheme of distribution of legislative powers betw~en the _Domm10n and the Provmces under the British North America **B** Act IS essentI~lly the same as under the Indian Constitution those principles of mterpretat10n may be accepted as a guide. [61F-G] _Subrahmanyam Cheltiar_ v. _M11th11swami_ _Goundan;_ [1940] F.C.R. 188, npphed. _Lefroy_ Canada's Federal System; _Halslmry's Laws_ _of_ _E11gla11d,_ 3rd Ed. Vol. _5_ p. 498, _Russe/_ v. _The_ _Quee11_ [1881-82] 7 A.C. 836, _A._ G. _for_ C _Canada_ v. _A.G._ _for Br. Columbia_ [1930] A.C. 111, _Jn_ _re:_ _The Regulation_ _and Control_ _of Aero11a11tics_ in _Canada,_ [1932] A.C. 54, Jn re : _Silver Bros._ _Ltd._ [1932] _A.C._ 514 and _Canadian Pacific Ry. Co._ v. _A.G._ _for Br .._ _Columbia_ [1950] A.C. 122, referred to. _Chhotabhai Jethablwi Patel_ v. _Union,_ [1962] Supp. 2 S.C.R.· J, _Prorince_ _of Madras_ v. _Boddu Paidanna,_ [1942] F.C.R. 90; _Bombay_ v. _Chamorbaug._ _wala,_ [1957] S.C.R. 874, _Atiabari Tea Co._ v. _Assam,_ [1961] I S.C.R. 809 **D** and _A11tomobile Transport_ v. _Rajasthan,_ f 1963] I S.C.R. 491, explaincJ. (c) The adoption of this mode of enquiry will not affect the federal **strnctu_re** **of** **the Constitution.** **The State Legislatures have full legislative** **nuthonty** **to** **pass** **laws** **in** **respect** **of entries** **in** **List** **II** **and subject to** **Ie2isla-** tion by Parliament on matters in List III. [67E-F]. (d) lt is not right to say that on this basis, List _I_ need not have E been formulated at all. Apart from the reason that the enumeration \vas done in List I to allay the fears of Provinces and Princely States which were not satisfied with the statement that the Centre was to have only re· **siduary powers but** **were** **particular to** **know** **what those Centres' po\\'ers** were, there is some merit and legal effect in having included specified items **in** **List** **I,** **for, when** **there** **a:re** **three Lists it is easier to construe List** **II** **in** the light of Lists I and III. If there hac! been no List I, many items in List JI would perhaps have been given a much wider interpretation than <:an be F given under the present scheme. [58C-F; 67G-H] (2) The impugned Act is not a law within entry 49, .List II. The nature of. wealth-tax is different from that of a tax under this entry. Wealth tax is a tax annually imposed on the net value of all assets _less liabilities_ of particular tax payers. It is deemed to be imposed on the person of the tax payer, but the requisites of a tax under entry 49, are : (i) it must be a tax on units, that is, lands and buildings separately **as** **units,** **(ii)_ the tax cannot be** **a tax on totality that** **is,** **it** **is** **not a** **composite** **tax** **on** **the** **value** **of all** **lands** **and** **buildings,** **and** **(iii)** **the** **tax** **is** **not concern-** **ed** **with the division** **of** **interest** **in** **the buildings** **or** **lands,** **that. is,** **it** **is** **not** **concerned whether one person owns** **or** **occupies it** **or** **two** **or** **more persons** **own** **or** **occupy** **it.** **Therefore,** **the** **tax** **under** **entry 49** **is** **not a personal tax** but a lax on property deemed to be imposed on an object the proporty itself. [.68B; 70E-H; 71A-B; E-G] G **H** _S._ _C._ _Nawa11_ v. _W.T.O._ [1969] 1 S.C.R. 108, _Asstt. Commission'er·_ I _Urhan Land Tax_ v. _B._ & C. _Mills_ [1970] I S.C.R. 268 and _Gift Tax Officer_ v. _D. H. Nazareth,_ [1971] I S.C.R. 195, discussed and followed : UNION _v._ H. S. DHILLON 35 The impugned legislation is therefore valid either under entry 86, List J, read with entry 97, List I or under ntry 97 List I standing by itself. /72G-HJ (2) (a) It cannot be legitimately inferred that taxes on the capital value of agricultural ·land were designedly excluded from entry 97, List, I, because of the use of the words 'exclusive of agricultural land' in entry 86, List I. If the intention was also not to include taxes on the capital value of agricultural land in entry 97, then it would have been included in some entry in List II or III, just as all other matters and taxes which have been excluded from entries in List I fall specifically within one or the other entries in List II or List III, since it is unthinkable that the Constitution **makers,** **while creating a** **Sovereign** **De1nocratic** **Republic,** **\vithheld** **certain** **niatters** **or** **taxes** **beyond** **the** **legislative competence of** **Parliament** **and** **the** Legislatu·res of the States. legislating .either singly or jointly. The words 'exclusive of agricultural land' are not words of prohibition. [46G; 4~C-FJ (b) The Constituent Assembly debates show that the first draft of the _3_ lists was such that in the case of the Princely States taxes on capital value _df_ agricultural land were not expressly mentioned and could only have been included in their residuary powers. ff so. there can be no reason for excluding it from the residuary powers ultimately conferred on Parlia· ment. The content of the residuary power does not change with its conferment on Parliament. [49G; 50E-HJ ( c) The words 'any other matter' in entry 97, List I, have re[erence to matters on which Parliament has been given power to legislate by the enumerated entries I to 96 and not to matters on which it has not been **given power to legislate such** **as** **a topic mentioned** **by** **way** **of** **cxclusiOn.** It is true that the field of legislation is demarcated by entries I to 96, List **J,** **but** **demarcation** **does** **not** **n1ean** **that** **if** **entry** **97 confers** **additional** powers, it should not be given effect to. /51F-H] (d) But whatever doubt there may be on the interpretation of entry 97 is removed by the wide terms of Art. 248. On its terms, the only question to be asked is : 'Is the matter sought to be legislated on included in List II or List III or is the tax sought to be levied mentioned in List II or List ITT. 1f the answer is in the negative, then. it follow; that Parliament has power to make laws with respect to that matter or tax. **This** **is** **so** **because,** **the** **function of** **the** **Lists** **is** **not** **to** **con'fer** **powers;** **they** merely demarcate the legislative field. The entries in the three Lists arc only legislative heads or fields of legislation, and the power to legislate is .~iven to the appropriate Legislature by Arts. 246 and 248 d the Constitution. [51H: 52A-B, El _Harakc/1and_ _Ratanchand Banthia_ v. _Union._ (1970] I S.C.R. 471, 489. followed. G. G. _in_ _Co1111ci/_ v. _Raleigh /m•estmcnt_ _Co.,_ [1944] F.C.R. 229, 261 :ipplied. (e) lt cannot he said that because of the statement in the report of the Union Powers Committee (Constituent Assembly Debates) namely that the **'residuary** **subjects** coul~ **only** **relate** **to** **matters** **\Vhich.** **'"hile** **thev** **n1av** **claim** **recognition** **in** **the** **future,** **are** **not** **nt** **present** **identifiable',** **\\·ealth** **taX** "·ould not fall under residuary power. since the concept of tax on net wealth was then well known. On the contrary, the debates show that not· "·ithstnnding that certain taxes were known to the members of the Constituent Assembly they were not mentioned in the final lists. and that they would only fall within the residuary power. It is not a sound principle **nf** **interpretation** **to** **adopt.** **to** **first** **ascertain** **\\'hether** **a** **tax** **\Vas** **known** **tn** , A B c **D** E F G **H** 36 SUPREME COURT REPORTS [1972] 2 S.C.R. the framers of the Constitution and include it in the residuary powers only if it was not known, because, it would be an impossible test to apply. The only safe guide for the interpretation of an article or articles of an organic instrument like the Constitution is the language employed, interpreted not narrowly. but fairly in the light of the broad and high purposes of the Constitution, but without doing violence to the language. Moreover, the debates themselves show that it was realised that the residuary entry would cover every matter not included in Lists JI and Ill, and that the enumeration of entries in List I only followed the precedent of the Canadian Constitution and informed the Provinces and the Princely. States as to the legislative powers the Union was going to have. [53B-D; 55E-F; 57C-E) _A.G._ _for Ontario_ v. _A.G. for Canada,_ [1947] A.C. 127, 150, and _A.G._ _for 011tario_ v. _A.G._ _for Canada,_ [1912] A.C. 571, 581, referred to. ( 4) It is true that under entry 86, List I, aggregation is necessary be· cause it is a tax on the 'capital value of assets ..r an individual', but it does not follow that Parliament is obliged to provide for deduction of debts in order to determine the capital value of the assets. So, even the Wealth Tax Act, as originally passed does not fall under entry 86, List I. In fact this Court did not hold in the earlier cases that the Wealth Tax A.ct fell umjer entry 86 List I. It was only so assumed. Therefore, it falls only under entry 97 List I. [74C-E] (5) Assuming that the Wealth Tax Act as originally enacted fell under cn•ry 86 List I, there is nothing in the Constitution preventing Parliament **from comb!ning its powers under entry 86, List I with its powers under** entry _'YI._ List I. T:here is no principle which debars Parliament from rely ing on the powers under the specified entries 1 to 96, List I and supplement them with the powers under entry 97, List I, and Art. 248 or even the powers under entries in List III. L74B-C) _State_ _of Bombay_ v. _Narothamdas lathabhai,_ (1951) S.C.R. 51, followed. _Subramaniam Cheltiar_ v. _Muthuswami Goundan,_ (1940] F.C.R. 188 and /11,., : _The_ _Re11ulation_ _and Control_ _of_ _Aeronautics in_ _Canada,_ [1932] A.C. 5.+, 77, referred to. _(Pei·_ Mitter, J. : The subject matter of the Wealth Tax Act including or excluding agricultural land is not covered by entry 86, List I, of the Seventh Schedule to the Constitution, read with Art. 246, nor by entry 49, List II but by entry 97, List I, read with Art. 248. [140C-D) (a) Broadly speaking, the scheme under Art. 246 is that Parliament is to have exclusive power to make laws with respect to matters in List I, the **State** **is** **to have such exclusive power with respect** **to** **matters** **in** **List II,** Subject to the powers of Parliament in respect of matters in List I and List IJT, while matters in List JJ[ would be the subject matter of legislation both by Parliament and the State Legislatures. Under entry 97, List I, Parliament bas exclusive powers to make laws with respect to any oth .. matter not enumerated in List JI or List III including any tax not mentioned in either of those lists. Article 248 provides that Pirrliament has exclusive power to make laws with respect to any matter not enumerated iQ the Concurrent List or State List. The Article makes it clear that the Constitution.Jmak~.rs were careful to see that the law making power with respect to any matters, which, until the date of the Constitution, had not been thought of as fit for legislation or had, by some chance, been omitted from the field df 1.ists II ~rid III. were. to be Within !lie exclMive jurisdiction of Parliament ·to legislate. Such law-ri'laki!ig power was to e*l~ttd ~o the imposition of a tax mentioned in either of the lists.fll3H; 114-A-F] A B c D E F G r UNION v. H. S. DHILLON 37 (b) Under the Wealth Tax Act, both before and after the amendment in 1969, an annual tax is imposed on the value of all the assets of. an assessee which are in excess of all his debts on the valuahon date subject **to certain exceptions.** **The taxation was to be based on the net** **\\'Orth** **of** an individual, that is to sav, his total assets Jess his debts. It is therefore possible for an asses.see, though seemingly in_ possession o_f. assets of great value not to be subject to proportionately high taxatton 1f he owes large debts. The scheme of the Wealth-tax Act in substance is thus to treat the individual as if he were a business, ascertain the price which the said busi ness would fetch by deducting its liabilities from its tangible assets and impose a tax on the balance which is the net wealth of an individu:al. Whereas under the Wealth-tax Act as originally enacted a portion of the **assets, namely agricultural land, was not to be taken** **int.o** **consideration,** the amendment of 1969 brought that in for the computation of the value of the assets. But the nature of the Act has not been changed, only it has been made more comprehensive then before. The Act does not proceed on the lines of Prof. Kaldor's suggestion that an annual tax on wealth should be a tax on accrual and not a tax on the principal itself. If the Act does not fall under any entry in List I or List II or List III it must be covered by entry 97, List I and be within the legislative competence of Parliament under Art. 248. Under the express words of Art. 248(1), one has only io consider whether the subject-matter of legislation is comprised in List II or List III : if it is not, Parliament is competent to legislate on it irrespective o'f the inclusion of a kindred subject in List I or the specified limits of such subject in this List. Although read by itself entry 97 may seem to suggest that the expression 'any other matter' has reference to the other entries in List I, Art. 248(1) makes it clear that such matters are those which are not covered by entries in Lists II and III. [112C-D. E-F; 119H; 120A-E; 140B-DJ ( c) Entry 86 List I, deals with taxes on capital value of the assets exclusive of agricultural land, of individuals and companies. This is the only entry in List I to which the.Act could conform. There is no entry in List III to which the Act could conform. It will not be improper to **interpret the expression 'capital value** **of** **assets'** **as** **meaning the aggregate** value of the assets which a willing: purchaser would offer a willing feller for the property in its conditipn at the time of the transaction. So interpreted the expression will take in only the assets less the charges secured **on** **it,** _**but not**_ _**an\!**_ _**other liability.**_ **The** **various** **decisions** **and** **authorities** **on** the Jaw relating to Rating and which bear on the true meaning of the expression also make it amply clear that the expression can only mean tr.e market value of the assets less any encumbrances charged thereon. The expression does not take in either general liabilitie• of the individual owning them or in particular the debts owed in respect of them. The capital value of th~ assets _df_ an individual is as different from his net wealth as the market value of ·the saleable assets of a business is from its value ~s a ~oing concern ignoring the good will. When a business is valued as a gomg concern its assets and liabilities whether charged on the fixed assets or n_ot have to be taken into account but in computing the value of the tangible assets of the business the general liabilities of the business apart from the encumbrances on its assets do not figure. Ll22C--E; 139E-HJ _Halsbury's_ _Laws_ _of_ _England,_ 3rd Ed. Vol. 32, p. 79, _Rvde_ on Rating, I Ith ed. p. 433 and _Faraday_ on Rating, 5th ed., p, 42 referred to. (d) In all the earlier cases regarding imposition of wealth tax it was assumed that the Act fell under entry 86, and the principal ground of attack on the Act was that 'Hindu undivided families' are not \individuals' and could not be brought to tax under that entry directly or by the aid of Art. 248, read with entry 97 of List I. No serious attempt was made -· A **B** c **D** E F **G** **H** .. . 38 SUPREME COURT REPORTS [1972]2 S.C.R. in any of the cases to properly indent~ly the subject-matter of the legislation imposing the tax and ascertain whether capital value of assets meant the same thing as net wealth. Therefore, the subject matter of legislation by the Wealth Tax Act is not covered by entry 86. p 39B-E] _Mahavir Prasad Badridas_ v. _Yagnik,_ _/[_ _W.T.O._ [1959] 37 J.T.R. 191, _N._ _V._ _S11brah111anian_ v. _W. T.0._ 40 J.T.R. 569, _P._ _Ra111abhadra_ _Raja_ v. _Union._ 45 I.T.R. ll8, _C._ _K._ _Mohammad_ _Keyi_ v. _W.T.O._ 44 I.T.R. 277, _Jugal Kishore_ "· _W.T.O._ 44 J.T.R. 94, _S._ _A._ _Sliitole_ v. _W.T.O._ 52 J.T.R. **'":>72,** _**M.A.**_ _**Mt1tl!ial Chettiar**_ **v.** _**W.T.0.**_ **53** **I.T.R. 104,** _**Banarsi Das**_ **v.** _**Tax-**_ _in}?_ _Officer,_ [1965] 2 S.C.R. 355 and _S._ _C._ _Naill_ v. _W.T.O.,_ [1969] I S.C.R. 108 and _Asstt._ _Com111issio11er_ v. _B._ & _C. Mills._ [1970] I S.C.R. 286. referred to. (el Entry 86 can be utilized for levying a capital levy in an emergency **or** **by** **way** **of a** **marginal** **imposition** **on** **an** **individual's assets without** consi~ deriog his holding of agricultural land. [I 40A-B] (i) Scanning the lists there can be little douht that the Constitutionmakers took care to insert •ubject-matters of legislation regarding land and particularly agricultural land and matrers incidental to the holding of agricultural land in the exclusive jurisdiction of State Legislatures, except when such agricultural land is included in evacuee property or when a question **of** **acquisition** **or** **requisitioning** **of** **agricultural** **property** **arises.** **So** **far** **as** some specific matters of legislation with regard to agricultural land arc concerned, they have been set forth in List IL while there are corresponding entries in List I which expressly exclude agricultural land. But, while entry 86, List I, excludes agricultural land from assets for purposes of **capitj1J** **value,** **there** **is** **no** **corresponding** **entry** **with** **regard** **to** **tax** **on** **capital** value of agricultural lands, the nearest approach to it being Entry 49 in List II dealing with 'taxes on lands and buildings'. [119A-F] (g) The concept of tax on net wealth which includes not only the value of the assets but also excluded the general liabilities of the assessec to pav his debts is one entirely different from a concept of tax attributable to' lands and buildings as such. That is, the levy has no direct relationship to the aggregate value of t~.e assets of an individual, but his net worth which was to be determined by deducting his liabilities from the total value of the a<sets held by him. Even assuming that entry 49, List JI envisages imposition to tax~s on lands and buildings adoP.ti~g a mode ?f a certain percentage on thelf capital value, lands and bmldmgs must still be subject to taxation as units and no aggregation is possible. The tax« on lands, and buildings in the entry should be construed as ta~es on lands **and** **taxes** **on** **building..;;.** **Further,** **no** **State Legislature** **is** **confident** **to** **levy** **a tax which** **\\·oul<l** **embrace** **an** **individual's assets** **in** **the** **shape** **of lands and** buildings out<idc the State. f I 36G-H; 140B-C] _The_ _A.rstt_ _Co111111issioner_ v. _B._ _&_ _C._ _Mills,_ [1970] I S.C.R. 268 and _s._ _c._ _Nawn_ '. _w.r.o._ [1969] I S.C.R. 108, followed. A B c **D** E F G _Sri Prit/ril"i Cotto!! Mills Lill._ v. _Borough Municipality_ [1970] I S.C.R. 388. _Rella_ _Ram_ v. _Province_ _of_ _East Pun;ah,_ 11948] F.C.R. 207; C. K. _Mohammad_ _Kali_,._ _W.T.O._ 44 J.T.R. 277. Sir _Byramjee Jeejeebhoy_ v. _Province_ _of_ _Madras._ A.l.R. 1940 Born. 65, _Municipal Corporation_ v. **H** _Gvdhandas_ A.l.R. 1954 Born. 188 and _Patel Gordhandas Har}?obindas_ v. .._ _Municipal Commissioner A/rmedahad,_ [1964] 2 S.C.R. 608, 622, referred, to. UNION _V._ H. S. DHILLON 39 Therefore the subject malter of legislation by the Wealth Tax Act is not covered by Entry 49, List II also. Hence Parliament has power to levy tax on net wealth _inclusive_ of agricultural land uhder its residuary **po\ver.** _(Per_ J.C. Shela!, A. N. Ray and I. D. Dua, JJ.) _Dissenting:_ (1) (a) Wealth tax is a tax annually imposed on the net value of all assets less liabilities. Such a deduction distinguishes the tax from property taxes such as death duties and capital levy. It is not imposed directly on the property but on the person of the assessee as it takes into consideration the asscssee's taxable capacity, by deducting his debts and liabilities from the gross value of his assets. [81 E-F; 82C-D] The Wealth Tax Act, 1957, as originally enacted was passed by Parliament in exercise of its power under Art. 246(!) read with entry 86, List J, Seventh Schedule of the Constitution. That entry deals with a tax on the capital value of the assets, exclusive of agricultural land, of an individual or a company. Under the Act the basis of the tax is the capital value of the assets held by an assessee on the relevant valuation date. The fact that it excludes one or more of the assets-agricultural land before amend **ment-or** **allows from its incidence certain deductions, such** **as** **debt'i** **and** liabilities, pertains to the field of computation and not the basis of the tax _and it does not change the character_ _of_ _the tax._ [SOF-G; SID) (b) Prof. Nicholas Kaldar, on whose recommendations in his Report on Indian Tax Reforms, 1956, the wealth tax was imposed, though the tax fell under the entry. [82A-C] **(c)** **In** **all** **the earlier cases that came** **up** **before this Court or the High** **Courts** **dealing** **with** **¥.'ealth** **tax:,** **it** **¥.·asi** **never** **the** **contention** **of** **the** **Union** that the Act di<l not fall under entry 86, List I. The discussion regarding Parliament's power under the entry and the State Legislature's power under entry 49, List II was not _ohiter_ nor did it proceed on assumptions. In deciding upon the ambit of the respective powers, the court made a distinction between a tax directly upon lands and buildings as units by reason of ownership in such lands and buildings (which would fall under entry 49, List II) and a tax on the capital value of the total assets barring agricultural land. It was categorically held that the two were conceptually different and that the biter fell undo" entry 86, List I. [82E--F; 85F-H] S. _C._ _Nmm_ v. _W.T.0._ [1969) 1 S.C.R. 108, _Banarsi Das_ v. _W.T,O, 56_ T.T.R. 224; _Asstr. Commr._ _of_ _Urban Land Tax_ v. _B._ _&:_ _C._ _Mill._ [19701 1 S.C.R. 268, _Prithvi Cottort Mills Ltd._ v. _Broach Borough_ _M1111icipa/ity._ i.1970] I S.C.R. 388 anll _Gift Tax Officer_ v. _Nazareth,_ [1971) 1 S.C.R. 195. referred to. (2) But a tax on the capital value _df_ assets _including agricultural land_ c;mnot be imposed under Art. 246(1) read with entry 86, List I. [86C-DJ (a) The entry restricts in express terms the power to impose a tax on the capital value of assets, _exclusive_ _of_ _agricultural land_ [8601 (b) The entries are _enumeratio simplex_ of broad categories and should be construed in a liberal spirit so as to include within each all that is subsidiary and incidenal to the power enumerated. But an interpretaion, however liberal cannot be adopted to include within it anything which the entry, in express tenns, excludes or restricts. [86E-F] _A.G._ _for New South Wales_ v. _Brewery Employees Union,_ [1908) 6 C.L.R. 649. 611 and _A.G._ _for Ontario_ v. _A.G._ _for Canada,_ [.1912) A.C. 571, referred to. ,, #### A B c n E G ##### • H 40 SUPREME COURT REPORTS [ 1972] 2 S.C.R. (c) The reason for excluding agricultural land from cnt.ry 86, List I is that under the scheme of distribution of powers underlymg the Lists, agricuJlure, with all' its subsidiary and incidental aspects, including_ taxa· tion has been, as in the case of the Government of India Act, 193), kfl to be dealt with hy the States. [860; 870--E] (d) It cannot be said that the Wealth Tax Act when passed in 1951 fell under entry 86, List I, but that it ceased to be so when it was amended **in** **1969 by** **including** **\Vithin** **its** **S\\'eep** **agricultural** **1an<l.** **In** dcciJ1~g **_the** **question as to the provision under. \vhich the Act was cnacte<l, the** <l1stln~·· tion between the subject-matter ot the Act and the scope of the po11-cr rn respect of it -has to be observed. The subject matter of the Act is the capital value of the total assets; its scope or field of operat10n is the capital value of all assets. excluding agricultural land. The subject matter, the **nature** **and** **the incidence of the** **tax** **remained** **the** **same,** **the** **only** **ditTcrcnce** **\Vhich** **the** **amendment** **ma<lc** **V\'as** **the inclusion of** **agricultural** **Jan<l** **\\·hile** computing the capital value of the assets of an assessee. The Act, even after its amendment, retained its original character. 188H; 93A-C] (3) The power to levy wealth tax on agricultural land is therefore no! under entry 86, List I. Nor does it fall under Art. 248 read with entry 97, **List** **I,** **dealing** **\\·ith** **residuary** **po\\\!rs.** **I** **88B]** (a) Article 2.J8 declares that Parliament has the exclusive power tJ **lc!!islatc** **on** **nt.1ttcrs** **not** **cnun1crateJ** **in** **List** **11** **or** **III** **and** **to** **impose** **a** **tax** not mentioned in either of 'those Lists, and entry 97 is inserted in List I **providing** **that** **Parlian1cnt** **has** **exclusive** **power** **to** **legislate** **on** **'any** **other** matter not enumerated in List JI or List JI! including any tax not mention·· ed in either of those Lists.' The object of providing residuary power was **to confer po,rcr** _**011/y**_ **in** **respect of a** **matter** **which** **\Vas** **not** **foreseen or** contemplated at the time _o·t_ framing the Constitution but which by reason **of** **changed** **circu1nstanccs** **might** **arise** **and** **\\"hich** **could not, therefore,** **be** **<lcalt** **\\'ith** **\\'hen** **the** **lists** **\\·ere** **framed.** **To hold otherwise** **\\'ould** **n1can** that though the power to levy Wealth tax with reference 'to agricultural land was deliberately omitted from entry 86, the framers of the Constitu**tion.** **\\·ho** **had** **in** **their** **min<ls** **a** **definite** **scheme of distribution of** **pO\\'Crs** **under** **\\'hich** **agriculture** **and** **taxation** **in** **relation** **to** **agriculture** **\\'ere** **hand-** ed o,·er to the States, nullified such exclusion by providing power for it in the residu3ry provision in entry 97: especially when agricultural land is >ueh a large asset in our country. !78F-H; 890-H; 90A-BJ _Subralimanyan Cliattiar_ v. _M11tl111swami,_ [1940] F.C.R. 188 applied. _Cijt Tax 0/Jicer_ ''· _Xa:aretli._ !1971] 1 S.C.R. 195 followed. A **B** c D E F .. ## **(b)** **Article 248 deals \\·ith residuary** **po"'·er** **and that** **pov.:cr** **is an** **inde·** p~n<lc_nl powe~ conferred hy the Article and not by entry 97 because, en**tries** **1n** **the Lists do** **not** **by themselves** **confer po\ver,** **hut onlv delineate** **G** **fields** **in** **\\'hich** **fhe** **respective** **po\\'ers** **are** **con'ferred** **on** **the** **LcgiSlaturcs** **bv** **the relevant Articles** **ofrthe** **Constitution.** **But \\'hen** **one** **talks nhout** **resf.** **duarv power** **the** **question** **at** **once arises what is** **it** **residuary** **of?** **Article** _**246(**_ **1) having, given exclusive power** **to** **Parliament. the po\\·cr** **in** **respect** - of those very matters therein provided for could not have been once again p-antcd by Art. 248. The only matters left for legislation would be those m List II and III and such of the matters not found in those Lists and onlv the last e9uld be the ·residuary m~tters of which exclusive power could be **H** given to .Parliament. Thcrdore, the r<siduarv power conferred bv Art. 248 m~ans power in respect of matters not dealt with in Art. 246 and not found in any of the three Lists. f9 l E-HJ UNION _V._ H. S. DHILLON 41 (c) The words 'any other matter not enumerated in List II or List Ill' must mean any matter not being in the entries preceding it, that is, entries l to 96 List 1 and any matter not enumerated in Lists II and HI. The phrases 'any matter' in Art. 248 and 'any _other_ matter' in entry 97 are used because of the context and there is no distinction between them. '{be residuary power declared by Art. 248 and of which the field is defined in entry 97, must, therefore, be. the power in .respect df a field or category of legislation not to he found in any of the hsts such as, Gift tax, pxpend1ture tax and Annuity deposit schcm~ [79D-E; 91H] (d) It cannot be said that since entry 86 in List I excluded agricultural land therefrom, that field of legislation and tax must be said to be one not enumerated and not mentioned in that List; and wealth tax being a tax on aggregation and hence conceptually different from the one which can be le\ied by the States under entry 49, List II it must be said to be not enumerated ln List II also, arid .therefore, wealth tax on agricultural land falls unMr the residuary entry 97. The subject matter relating to a tax on the aggregate capital value of all assets of an assessee is located in entry 86, List 1, and granted to Parliament, except the power to tax on the capital value of agricultural land. Constitution-makers may, as a matter of principle or policy, while dealing with or granting power, do so in a qualified ar restricted manner. There is no warrant for saying that there must l)e found vested in one single authority an absolute power to legislate wholly with respect to a given subject. The fact that a power is **con'ferred,** **not** **in** **its** **entirety.** **but** **with** **a** **restriction** **upon** **it,** **cannot** **mean** that the subject matter in respect of it has not been dealt with, or that therefore, it falls under the provisions dealing with residuary matters. It is impossible to say that there are two matters under entry 86 one permissible and the other not enumerated anywhere else and therefore falling under Art. 248, and/or entry 97 in List I. [89A-D; 92A-CJ ( e) The debates of the Constituent Assembly show that if in the enumeration of powers in the three lists any topic of legislation was left out, such a topic would fall in the residuary power conferred on the Centre, and that the purp()se ()f inserting the entry relating to residuary powers was to define its scope, which was, that the Centre was to have exclusive power not only on matters enumerated in the preceding entries but also on matters not enumerated in Lists II and Ill. Therefore, the residuary p()wer lod~ed in Art. 248 was in respect of 'matters which could not be foreseen or contemplated when the Lists were framed, and hence, could not then be included in any one of them. [lO!B-C, G-H; 102A-B, DE, (l-HJ (f) It is true that one member,expressed an opinion as to the possible exercise in fullµ'e of the residuary power under Art. 248 and Entry 97 List I, for imposing a capital levy on agricultural land; but it was hi~ individual opinion and there was nothing to show that any other member took up or agreed with his•suggestion'. It is therefore not po-.ible to spell**out.** **any** **consensus** **of** **opi!Jion** **in** **the** Ass~mbly **or** **an** **awareness** **on** **the** **part** of its members of th.e residuary power bemg capable of being used in future for a tax such as the impugned one. fl02H; !03A-B, D-E] ( 4) It does not however mean that a tax on the capital value of agri cultu~al land cannot. at all be imP?sed. The power !s contained in entry 49, List JI. Just as m the case of mcome tax, succession and estate duties, the power pf both the Legislatures to make a law or impose a tax on any of these matters is restricted, hut within the field allocated to each of them, each has a plenary power. [93E-H] (5) It is not a proper enquiry 10 consider whether the jmpugned tax encroached· upon entry 4<:!, List II ;ind if it did not, to hold that that power 4-L256 Sup Cl/72 A B c n E F G 42 SUPREME COURT REPORT~ [1972] 2 S.C.R. **must** **reside** _**in**_ **Parliament** **on** **the** **basis** **that** **Art.** **248** **is** **in** _**pari**_ _**n1ateria**_ **with** s. 91 of the British North America Act. There is no similarity either in the content or the scheme between the distributive system in the Br. N. America Act and our Constitution. There is no d·eclaration in general and unspecified terms in our Constitution as there is in the first part of s. 91 of the Br. N. America Act, nor is there the interlacing of powers brought about by expressions such as 'for the peace, order, good government of **Canada',** **and** **in** **relation to** **all** **matters not coming within the classes of** subjectS by the Act assigned exclusively to the legislatures of Provinces' as 10 s. 91. The powers of Parliament and State 'Legislatures under Art. 246 and the field of legislation delineated in the three Lists arc well defined **in** **elaborate** **and** **precise·** **terms** **and** **ffre** **disjunctive** **and** **independent.** **The** State Legislatures are not the delegates of, nor do they derive their powen; from Parliament. They enjoy within their fields of legislation plenary po'"'ers including the power to legislate on all matters incidtntaJ and subsidiary to the matters assigned to them. The question of pre-eminence of **Parliamentary** **regulation** **by** **reason** **of** **the** _**non-ob.1·tante**_ **clause** **in** **Art.** **246,** arises only where there is overlapping of jurisdictions or the law in question is in respect of any of the matters in List Ill. The power of the **States** **is** **as** **exclnsivc** **in** **their** **field** **as** **it** **is** **of** **Parliament** **within** **its** **allotted** field. J,940-H: 980--0] **Observation** **of** **Gwycr** **C.J.** **in** _**Suhrahanlanycun**_ **v.** _**Muthuswan1i,**_ **[1940J** F.C.R. 188, 200 explained. _Province_ _of_ _Madras_ v. _Mis._ _Boddu Paidanna._ [1942] F.C.R. 90 !05 and _Main Kkasundara Bhattia_ v. _Nayudu,_ [19461 F.C.R. 67, 87-88, referred to and applied. Tn re: _C._ _P._ & _Berar Act,_ 14 _of_ 1938, [1939] F.C.R. 18, 38, referred to. C1vrL APPELLATE JuR1so1cnoN: Civil Appeal No. 2172 of 1970. Appeal from the judgment and order dated Ceptember 28, 1970 of the Punjab and Haryana High Court in Civil Writ No. 2673 of 1970. _M._ _C._ _Setalvad,_ _M._ _C._ _Chagla,_ _R._ _II._ _Dhebar_ and _B._ _D._ _Sharma,_ for the appellant. _H._ _L._ _Sibbal, Advocate-Genera/, Punjab,_ _N._ _A. Palkhiva/a,_ _Bhuvanesh Kumari,_ _J._ _B._ _Dadachanji,_ _0. C._ _Mathur_ and _Ravinder_ _Narain,_ and _K._ _P._ _Bhandari,_ for the respondent. _H._ _L. Sibbal, Advocate-Genera/, Punjab,_ _P._ _C._ _Bhartari,_ _I._ _B._ _Dadachanji,_ _0._ _C. ·Mathur_ and _Ravinder_ _Narain,_ for intervener No. 1. _C._ _K._ _Daphtary_ and _S._ _B. Wad,_ for intervener No. 2. _S._ _K._ _Dholakia_ and _B._ _D. Sharma,_ for intervener No. 3. _M. M. Abdul Khadar, Advocate-Genera/,_ _Kera/a_ and _M._ _R._ _Krishna_ _Pillai,_ for intervener No. 4. A B c **D** E F G **H** UNION _v._ H. S. DHILLON _(Sikri,_ C.J.) 43 A _B._ _Sen,_ S. _P._ _Mitra,_ G. S. _Chatterjee_ for _Sukumar Basu,_ for intervener No. 5. _Lal Narayan Sinha, Advocate-Genera/, Bihar_ and _U._ _P._ _Singh,_ for the intervener No. 6. _R._ C. _Mishra, Advocate-Genera/, Orissa, Santosh Chatterjee_ B and G. S. _Chatterjee,_ for intervener No. 7. G. _B._ _Pai,_ _P._ _K. Kurian, Bhuvanesh Kumari, I. B. Dadachanji,_ _O._ C. _Mathur, Ravinder Narain_ aud _A._ _Menesis,_ for intervener No. 8. G. _B. Pai,_ _P._ _K. Kurian, Bhuvanesh Kumari, I. B. Dadachanji,_ C _0._ C. _Mathur_ and _Ravi$er_ _Narain,_ for interveners Nos. 9 and 10. _K._ C. _Puri,_ _K._ _L._ _Mehta,_ S. _K._ _Mehta_ and _K. R. Nagaraja,_ for intervener No. 11. _R. N._ _Banerjee, 0. P._ _Khaitan,_ _J.B. Dadachanji,_ _0._ C. _Mathw·_ D and _Ravinder Narain,_ for intervener No. 12. _M. K. Ramamurthi,_ C. _R. Somasekharan, Madan Mohan,_ _Vineet Kumar. Bindra Rana,_ S. _Ganesh_ and _Ramesh_ C. _Pathak,_ for intervener No. 13. _R._ _K._ _Garg,_ S. C. _Agarwala, Narayana Nettar, R._ _K._ _Jain_ and _V._ _J._ _Francis,_ for interveners Nos. 14 to 16. _K. R. Chaudhuri_ and _K._ _Rajendra Chowdhary,_ for intervener No. 17. /. _B._ _Dadachanji,_ _0._ C. _Mathur, Ravinder Narain_ and _P._ C. _Bhartari,_ for intervener No. 18. S. M. Sikri, C.J. delivered judgment on behalf of himself, S. C. Roy and D. G. Palekar, JJ. G. K. Mitter, J. gave a separate but concurring judgment. J. M. Shelat, J. on qeha~f of himself and A. N. Ray and I. D. Dua, JJ. gave a dissenting opinion. Sikri, _C.I._ This appeal is from the Judgment of the High Court of Punjab & Haryana in Civil Writ No. 2291 of 1970, which was heard by a Bench of five Judges. Four Judges held that s. 24 of the Finance Act, I 969, insofar as it amended the relevant provisions of the Wealth Tax Act, 1957, was· beyond the legislative competence of Parliament. Pandit, J., however, held that the impugned Act was _intra vires_ the legislative powers of Parliament. The High Court accordingly issued a direction to the effect that the Wealth Tax Act, as amended by Finance Act, 1969, insofar as it includes the capital value of the agricultural land for the purposes of computing net wealth, was _ultra vires_ the Constitution of India. ... E G H SUPREME COURT REPORTS l 19"/lj _l_ S.C.R. We may mention that the majority also held that the impugned A Act was not a Jaw with respect to entry 49 List Il of the Seventh Schedule to the Constitution; in other words, it held that this tax was not covered by entry 49 List II of the Seventh Schedule. The Wealth Tax Act, 1957, was amended by Finance Act, 1969, to include the capital value of agricultural land for the purposes of computing net wealth. "Assets" is defined in s. 2(c) to include property of every description, movable or immovable. The exclusions need not be mentioned here as they relate to earlier assessment years. "Net Wealth" is defined in s. 2(m) to mean "the amount by which the aggregate value computed in accordance with the provisions of this Act of all the assets, wherever located, belonging to the assessee on the valuation date, include~ assets required to be included in· his net wealth as on that date under this Act, is in excess of the aggregate value of all the debts owed by the assessee on the vaLuation date," ·other than certain debts which are set out in the definition.. "Valuation date" in relation to any year for which the assessment is to be made under this Act is defined in s. 2(q) to mean the last day of the previous year as defined in s. 3 of the Income-tax. Act, if an assessment were to be made under this Act (or that year. We need not set out the proviso here. Sect.ion 3 is .the charging section which reads: "3. Subject to the other provisions contained in this Act, there shall be charged for every assessment year commencing on and from the first day vf April, 1957, a tax (hereinafter referred to as the "wealth-tax") in respect of the net wealth on the corresponding valuation date of every individual, Hindu Undivided Family and company at the rate or rates specified in the Schedule." Section 4 includes certain assets as belonging to $e assessee. Section _5_ gives certain exempt;ions in respect (lf certain assets. We need only reproduce s. S(iva) : "S(iva). Agricultural land belonging to the assessee subject to a maximum of one hundred and fifty thousand rupees in value : Provided that where the assessee owns any house or part of a house situate in a place with a population exceeding ten thousand and to which the provisions of clause (iv) apply and the value of such house or part of a house together with the value of the agricultural land exceeds one hundred and fifty thousand rupees, then the amount that shall not be included in the net wealth of the assessee under this clause shall be one B c D E F G H 45 A B c D E F G H UNION _v._ H. S. DHILLON _(Sikri, C.J.)_ hundred and fifty thousand rupees as reduced by so much of the value of such house or part of house as is not to be included in the net wealth of the assessee under clause (iv). Sections 5(ivb), 5(viiia) and 5(ix) read : "5(ivb) one building or one group of building owned by a cultivator of, or receiver of rent or revenue out of agricultural land : Provided that such building or group of buildings is on or in the immediate vicinity of the land and is re quired by the cultivator or the receiver of rent or revenue, by reason of his connection with the land, as dwelling-house, store-house or outhouse;" "5(viiia) growing crops (including fruits on trees) on agricultural land and grass on such land;" "5(ix) The tools, implements and equipment used by the assessee for the cultivation, conservation, improvement or maintenance of agricultural land, or for the raising or harvesting of any agricultural or horticultural produce on such land. _Exp/anation.-For_ the purposes of this clause, tools, implements and equipment do not include any plant or machinery used in any tea or other plantation in connection with the processing of any agricultural produce or in the manufacture of any_ article from such produce;" Section 7(1) deals with the evaluation of the assets and provides that "subject to any rules made in this behalf, the value of any asset, other than cash, for the purposes of this Act, shall be eitimated to be the price which in the opinion of the Wealth-tax Officer it would fetch if sold in the open market on the valuation date." Rest of the provisions are machinery provisions dealing with the authorities, assessment and special provisions dealing with iipecial cases like appeals, revisions, references, payment and recovery of wealth tax, refunds and miscellaneous provisions . . The submissions of Mr. Setalvad, appearing on behalf of the Union in brief were these : That the inlpugned Act is not a law with respect to any entry (including entry 49) in List II; if this is so, it must necessarily fall within the legislative competence of Parliament under entry 86. read with entry 97, or ent··y 97 by itself read with Art. 248 of the Constitution: the words "exclusive of airicultural land"' in ~ntry 86 could not. cut down the scope of either entry 97 List' I, or Art. 248 of the Constitution. 46 .SUPREME COURT REPORTS [1972] 2 S.C.R. The submissions of Mr. Palkiwala, who appeared on behalf of the respondent in the appeal, and the other counsel for the interveners, in brief, were these : It was the scheme of the Constitution to give States exclusive powers to legislate in respect of agricultural land, income on agricultural land and taxes thereon; in this context the object and effect of specifically excluding agricultural land from the scope of entry 86 was also to take it out of the ambit of entry 97 List I and Art. 248; the High Court was wrong in holding that the impugned Act wrui not a law in respect of entry 49 List II. It was further urged by Mr. Setalvad that the proper way of testing the validity of a parliamentary statute under our Constitution was first to see whether the parliamentary legislation was with respect to a matter or tax mentioned in List II; if it was not, no other question would arise. The learned counsel for the respondent contended that this manner of enquiry had not been even hinted in any of the decisions of this Court during the last 20 years of its existence and there must accordingly be somethiing wrong with this test. He urged that insofar as this test is derived from the Canadian decisions, the Canadian Constitution is very different and those decisions ought not to be followed here and applied to our Constitution. It seems to us that the best way of dealing with the question of the validity of the impugned Act and with the contentions ~f the parties is to ask ourselves two questions; first, is the impugned Act legislation with respect to entry 49 List II? and secondly, if it is not, is it beyond the legislative competence of Parliament? A B c D E We have put these questions .in this order and in this form because we are definitely of the opinion, as explained a little later, that the scheme of our Constitution and the actual terms of the relevant artitles, namely, Art. 246, Art. 248 and entry 97 List I, show that ::ny matter, including tax, which has not been allotted F exclusively to the State Legislatures under List II or concurrently with Parliament under List III, falls within List I, including entry 97 of that list read with Art. 248. It seems to us unthinkable that the Constitution-makers, while creating a sovereign democratic republic, withheld certain matters or taxes beyond the legislative competencv of the legNatures in G this country either legislating singly or jointly. The language of the relevant articles on the contrary is quite clear that this was not thie intention of the Constituent Assem b'v. Chapter I of Part XI of the Constitution deals with "Distribution of Legislative Powers." Article 246 in this Chapter reads thus : "246.(1) Notwithstanding anything in clauses (2) and H (3), Parliament has exclusive power to make laws with respect to any of the matters enumeratied in,List I in the UNION _v._ H. S, DHILLON _(Sikri,_ C.J.) 47 A 8 c D E F G H . Seventh Schedule (in this Constitution referred to as tire "Union List"). (2) Notwithstanding anything in clause (3) Parliament, and, subject to clause ( 1), the Legislature of any State also, have power to make laws with respect to any of the matters enumerated in List III in the Seventh Schedule (in this· ConstitutiQU referred to as the "Concurrent List"). (3) Subject to clauses (1) and (2'), the Legislature of any State has exclusive power to make laws for such State or any part thereof with respect to any of the matters enumerated in List II in the Seventh Schedule (in this Constitution referred to as the "State List"). (4) Parliament has power to make laws with respect to any matter for any part of the territory of India not included in a State notwithstanding that such matter is a matter enumerated in the "State List." Reading Art. 246 with the three Lists jn the Seventh Schediile, it is quite clear that Parliament has exclusive power to make laws with respect to all the matters enumerated in List I and this notwithstanding anything in clause ( 2) and ( 3) of Art. 246, The State Legislatures have exclusive powers to make laws with respect to any of the matters enumerated in List II, but this is subject to clauses (I) and (2) of Art. 246. The object of this subjection is to make Parliamentary legislation on matters in Lists I and ID paramount. Under cl. ( 4) of Art. 246 Parliament is competent also to legislate on a matter enumerated in State List for any part of the territory of India not included in a State. Article 248 gives the residuary powers of legislation to the Union Parliament. It provides· "248. (1) Parliament has exclusive power to make any law with respect to any matter not enumerated in the Concurrent List or State List. (2) Such power shall include the power of making any law imposing a tax not mentioned in either of those Lists." Under Art. 250 Parliament can legislate with respect to any matter in the State List if. a proclamation of emergency is in operation.Under Art. 253 Parliament has power to make any law fo; the whole or part of the territory of India for the purpose of implementing any international treaty, agreement or convention. This scheme of distribution of legislative power has been derived from the Government of India Act, 1935, but in one respect there is a great deal of difference, and it seems to us that this makes 48 SUPREME COURT REPORTS [1972] 2 S.C.R. the scheme different insofar as the present controversy is concerned. Under the Govt. of India Act, the residuary powers were not given either to the Central Legislature or to the Provincial Legislatures. The reason for this was given in the Report of the.Joint Committee on Indian Constitutional Reform, volume I, para _5_ 6. The reason was that there was profound cleavage of opinion existing in India with regard to allocation of residuary legislative,powers. The result was the enactment of s. 104 of the Govt. of India Act, which provided: "104. Residual powers of legislation (1) The Governor~General may by public notification empower either the Federal Legislature or a Provincial Legislature to enact a law with respect to any matter npt enumerated in any of the lists in the Seventh Schedule to this Act, including a law imppsing a tax not mentioned in any such list and the executive authority of the Federation or of the Province, an the case may be, shall extend to the administration of any law so made, unless the Governor-General otherwise directs. (2) In the discharge of his functions under this section the Governor-General shall act in his discretion." It appears from para 50 of this report that "the method adopted by the White Paper (following in this respect the broad lines of Dominion Federal Constitutions) is to distribute legislative power between the Central and Provincial Legislatures respectively, and to define the Central and Provincial spheres of government by reference to this distribution," and because of apparently irreconcilable difference of opinion that existed between the great Indian communities v·'th regard to the allocation of residuary powers, the Joint Cornmi"' _.::_ found itself unwilling to recommend an alteration of th~ v:nite Paper proposal. There does not seem to be -any dispute that the Constitutionmakers wanted to give residuary powers of legislation to the Union Parliament. Indeed, this is obvious from Art. 248 and entry 97 List I. But there is a serious d.ispute about the extent of the residuary power. It is urged on behalf of the respondent that the words "exclusive of agricultural land" in entry 86 List I were words of prohibition, prohibiting Parliament from including capital value of agricultural land in any law levying tax on capital value of assets. Regarding entry 97 List I it is said that if a matter is specifically excluded from an entry in List I, it is apparent that it was not the intention to include it under entry 97 List J: the words "exclusive of agricultural land'' in entry 86 by themselves consli .. tuted a matter and therefore they could not fall within the word> "any other matter" in entry 97 List J. Our attention was drawn A B c D E F G H A B c D E F G H UNION _v._ H. S. DHILLON _(Sikri,_ C.J.) to a number .of entries in List I where certain items have been excluded from List I. For example, in entry 82, taxes on agricultural income have been excluded from the ambit of "Caxes on income"; in entry 84 there is exclusion of duties of excise on alcholic liquors for human consumption and on opium, Indian hemp and other narcotic drugs and narcotics; in entry 86, agricultural land has been excluded from the field of taxes on the capital value of the assets; in entry 87, ·agricultural land has again been excluded from the Union Estate duty in respect of property; and in entry 88, agricultural land has been further excluded ftom the incidence of duties in respect of succession to property.· .It was urged that the object of these exclusions was to comple'cely deny Parliament competence to legislate on t:hese excluded matters. It will be noticed that all the matters and taxes which have been excluded, except taxes on the capital value of agricultural land under entry 86 List I fall specifically within one of the,entries in List II. While taxes on agricultural .income ·have been excluded from entry 82 List I, they form entry 46 List II; duties of excise excluded in entry 84 List I have been included in entry 51 List II; agricultural land exempt in ent;ry 87 has been incorporated as entry 48 List II; and, similarly, agricultural land exempted from the incidence of duties in respect of succession to property has been made the subject-matter of duties in respect of succession in entry 4 7 List II. It seems to us that from this scheme of distribution it cannot be legitimately inferred that taxes on the capital value of agricultural land were designedly excluded from entry 97 List I. In this connection it is well to remember· that the first draft of the 3 lists was attached to the report of the Union Powers Commit!~ dated July _5,_ 194 7 (see vol. V, Constituent Assembly Debates, page 60). List I then consisted of 87 entries and there was no residuary entry. It was on August 20, 1947, that: Mr. N. Gopalaswami Ayyangar moved that this report be taken into consideration. At that stage it was evident that in the case of Indian States the residuary subjects were to stay with the Indian States unless they were willing to cede them to the Centre. He said : !'Now, Sir, when this Committee met after its first report liad been presented, we were relieved of the shackles which we had imposed on ourselves on account of the acceptance of the Cabinet Mission Plan ~nd the Committee came to the conclusion that we should make the Centre in this country as strong as possible consistent with leaving a farily wide range of subjects to the provinces in which they would have the utmost freedom to order things as they liked. In accordance with this view, a decision was taken that we should make three exclusive 50 SUPREME COURT REPORTS [1972] 2 S.C.R. ~ists, 01_1e of the Fe<Jeral subjects, another of the Provincial ~ubiec;ts and the third of the Concurrent subjects and tha~ if there was any re~idue left at all, if in the future any sub1ect cropped up which could not be accommodated in one of these three Lists, then that subject should be deemed to remain with the Centre so far as the' Provinces are concerned. This decision, ·however, is not one which the Committee has ·applied to the States. You will find a reference to this in the Report. What is said !here is that these residuary subjects will remain with the States unless the. States are willing to cede them to the Centre. Well, I do not know if those who represent the States in this House will take any decision of the kind which perhaps the Committee hoped for when it said so; but we have got to take things as they are. There is another matter which it is important that we should recognise. Residuary subjects in the case of provinces are subjects which are not accommodated in any of the three long Lists that we have appended to the Report. Residuary subjects in the case of the States would really mean all subjects which are not included in the Federal List. I want to draw attention to this, because I know my Hon'bb friend Dr. Ambedkar would rather see that the States accede also on certain illems which are included in the Concurrent List, if not the whole of that list. There is a school of opinion in favour of that. But, as things st'and now, the report stands today, all the subjects included in the Provincial List, all the subjects included in the Concurrent List and whatever subjects may not be included in the federal list are with the States." If the residuary subJects had ultimately been assigned to the States could it hav bieen seriously argued that _vis-a-vis_ the States the matter of Taxes on "Capital value of agricultural land" would have been outside the powers of States? Obviously not, If so, there can be no reason for excluding it from the residuary powers ultimately conferred on Parliament. The content of the residuary power does not change with its conferment on Parliament. It may be that it was thou'!ht that a tax on capital value of adficultural land was included in entiy 49 List II. This contention will be examined a little later. But if on a proper interpretation of entry 49 List II, read in the light of entry 86 List I, it is A B c D E F G H A c D E F G H UNION _v._ H. S. DHILLON _(Sikri,_ C.J.) 51 held that tax on the capital value of agricultural land is not included within entry 49 List II or that the tax iniposed by the inIpugned statute does not fall either in entry 49 List II or entry 86 List I, it would be arbitrary to say that it does not, fall within entry 97 List I. We find it impossible to liniit the width of art. 248 and entry 97 List I by the words "exclusive of agricultural land" in entry 86 List I. We do. not read the words "any other matter" in entry 97 to mean that it has any reference to topics excluded in entries 1-96 Listl 1. It is quite clear that the words "any other matter" have reference to matters on which the Parliament has been given power to legislate by the enumerated entries 1-96 List I and not to matters on ',Vhich it has. not been given power to legislate. The matter in entry 86 List I is the whole entry and not the entry without the words "exclusive·of agricultural land". The matter in entry 86 List I again is not tax on capital value of assets but the whole entry. We may illustrate this point with reference to some other entries. In entry 9 List I "Preventive Detention for reasons connected with defence, foreign affairs or the security of India" the matter is not Preventive Detention but the whole entry. Similatly, in entry 3 List III "Preventive Detention for reasons connected with the Security of the State, the maintenance of public order or the maintenance of supplies and services essential to the community" the matter is not Preventive De!~ntion but the whole entry. It would be erroneous to say that entry 9 List I and entry 3 List III deal with the same matter. Similarly, it would, we think, be erroneous to treat entry 82 List I (Taxes on income other than agricultural income) as containing two matters, one, tax on income, and the other, as "other than agricultural income". It would serve no useful purpose to multiply illustrations. It seems to us that the function of Art. 246( I), read with entries 1-96 List I, is to give positive power to Parliament to legislate in respect of these entries. Object is not to debar Parliament from legisfaling on a matter, even if other provisions of the Constitution enable it to do so. Accordingly, we· do not interpret the words "any other matter" occurring in entry 97 List I to mean a topic mentioned by way of exclusion. These words really refer to the matters contained in each of the entries 1 to 96. The words "any other matter" had to be used because entry 97 List I follows entries 1-96 List I. It is true that the field of legislation is demarcated by entries 1-96 List I, but demarcation does not mean that if eptry 97 List I confers additional powers we should refuse to give. effect to _!t._ At any rate, whatever doubt there m;1v be on the mterpretation of entry 97 List I is removed by the wide terms of Art. 248: It is framed in the widest omsible terms. On its terms the only question to be asked is : Is the matter sought to be legiS~ lated on included in List II or in List III or is \he tax sou2ht to be levied mentioned in List· II or in List III ? No question has to be 52 SUPREME COURT REPORTS [1972] 2 S.C.R. asked about List I. If the answer is in the negative, then it follows that Parliament has power to make laws with respect to that matter or tax. It must be remembered that the function of the lists is not to confer powers; they merely demarcate the legislative field. The Federal Court, while interpreting the Government of India Act in _The Governor-General in Council_ v. _the Re/eigh Investment Co.(')_ observed: "It would not be right to derive the power to legislate on this topic merely from the reference to it in the List, because the purpose of the Lists was not to create or confer powers, but only to distribute bet.ween the Federal and the Provincial Legislatures the powers which had been conferred by ss. 99 and 100 of the Act." In _Harakchand Ratanchand Banthia_ v. _Union of India(")_ Rounaswami, J., speaking on behalf of the Court, while dealing with the Gold (Control) Act (45 of 1968) observed: "Before construing these entries it is usefurto notice some of the well-settled rules of interpretation laid down by the Federal Court and by this Court in the matter of construing the entries. The power to legislate is given to the appropriate legislature by Art. 246 of the Constitution. The entries in the three Lists are only legislative heads or fields of legislation; they dernarc_~te the area over which the appropriate legislatures can operate." We are compelled to give full effect to Art. 248 because we know of no principle of construction by which we can cut down the wide words of a substantive article like Art. 248 by the wording of an entry in Schedule VII. If the argument of the respondent is ace'epted, Art. 248 would have to be re-drafted as follows : "Parliament has exclusive power to make any law with respect to any matter not mentioned i·n the Concurrent List or State List, provided it has not been mentioned by way of exclusion in any entry in List I." We simply have not the power to add a proviso like this to Art. 248. We must also mention that no material has been placed before us to show that it was ever in the mind of anybody, who had to deal with the making of the Constitution, that it was the intention to prohibit all the legislatures in this country from legis!a'ting on a particular topic. (!) fllH: F. C.R. 229,261. _<2)_ !1970/ 15.C.R. 479, 489. A B c D E F G H A 8 c D E F G H UNION _V._ If. S. DHILLON _(Sikri, C.J.)_ 53 Mr. Palkiwala referred to the following extract from para 2 of the report of the Union Powers Committee, dated July 5, 1947 (Constituent Assembly Debates, Vol. 5, page 58): "We think that residuary powers should remain with the Centre. In view however of the exhaustive nature of the three lists drawn up by us, the residuary subjects could only relate to matters which, while they may claim recognition in the future, are not at present identifiable and cannot there be included now in the lists." Basing himself on this extract he said that the !'ax on "net wealth" was well-known and if it had been the desire to include it, it would havi;: been mentioned. We do not think it is a legitimate manner of interpreiation. The debates show that notwithstanding that certain taxes were known to the members of the Constituent A.ssembly they were not mentioned in the final list. Yet it can hardly be argued that they would not fall within the residuary powers. In the report of the Expert Commit~ee on Financial Provisions, dated December 5, 1947, (Constituent Assembly Debates, Volume 7, page 53), it is stated that one of the terms of reference was: "IX. On the basis that the residuary powers are vested in the Centre in the new Constitution so far as the Provinces are concerned, and in the States so far as the States are concerned, is it necessary that any additional specific taxes should be entered in the Provincial List, and if so, what ? The Committee reported in para 72 as follows : It appears that under the new Constitution, residuary powers will be vested in the Centre so far as the Provinces are concerned, while the corresponding residuary powers in respect of the States will be vested in the States themselves. The question has therefore been raised whether, as a consequence, as many specific taxes as po~f­ ble should not be entered in the Provincial List oJ sub jects. We cannot think of any important new tax that can be levied by the Provinces, which will not fall under one or the other of the existing categories including in the Provincial List. We think that the chance of any practical difficulty arising out of the proposed constitutional position is remote, and, in any case, it seems to us that if a tax is levied by the Centre under 54 SUPREME COURT REPORTS [1972] 2 s.c.R. its residuary powers, there will be nothing to prevent the proceeds of the whole or a part of this t;ax being distributed for the benefit of the Provinces only. As a matter of abundant caution, however, it may be laid down in the Constitution that if any tax is levied by the Centre in future under its residuary powers, and to the extent that the States do not agree to accede to the Centre in respect of the corresponding subject, the whole or a part of the proceeds of 'the tax shall be distributed between the Provinces and the acceding States only. This disposes of item IX of our Terms of Reference." The Committee recommended certain articles : "198. Salt duties and excise duties.--(!) No duties on salt shall be levied by the Federation. " "198-A. Taxes not enumerated in any of the lists in the Ninth Schedule. If any _tax_ not mentioned in any of the lists in the Ninth Schedule to this Constitution is imposed by Act of the Federal Parliament by virtue of entry 90 of the Federal Legislative List, such fax shall be levied and collected by the Federation but a prescribed percentage of the net proceeds in any financial year of any such tax, except in so far as those proceeds represent proceeds attributable to Chief Commissioners' Provinces, shall not form part of the revenue of the Federation. but shall be assigned to the units within which that tax is leviable in that year, and shall be distributed among the units in accordance with such principles of distribution as may be prescribed." The Committee further recommended that in the Provincial Legislative List in the Ninth Schedule, for entry 50, the following may be substituted, namely : "50. Taxes on the sale, turnover rn; purchase of goods including taxes in lieu thereof on the use or consumption within the Province of goods liable to taxes within the Province on sale, turnover or purchase; taxes on advertisement." Two points emerge from this. The Constituent Assembly knew how to prohibit Parliament from levying a tax (see proposed Art. 198-A set out above). Secondly, they knew of certain taxes A B c D E F G H A B c **D** E F UNION _v._ H. S. DHILLON _(Sikri,_ _CJ.)_ 55 as taxes on the use or consumption of goods. The' proposal to include them in the Provincial List was not accepted. Indeed, Shri T. T. Krishnamachari said this about this proposal:• "Sir, one other recommendation of t;he Expert Committee is, I am afraid, rather mischievous. That is, they have suggested in regard to Sales Tax-which is item 5 8 in List 2-that the definition should be enlarged so as to include Use Tax as well, going undoubtedly on the experience of the American State Use Tax which, I think, is a pernicious recommendation. I think, it finds a reflection in the mention of Sale; Tax in Item 58 which ought not to be there." If Parliament were to levy a Use Tax, it could hardly be thrown out on the grounu tha~ it cannot be included in the residuary powers because the tax was known at the time of the framing of the Constitution. Indeed it does not seem to be a sound principle of interpretation !lo adopt to first ascertain whether a tax was known to the framers of the Constitution and include it in the residuary powers only if it was not known. This would be an impossible test to apply. Is the Court to ask members of die Constituent Assembly to give evidence or is the Court to presume that they knew of all the possible taxes which were being levied throughout the world? In our view the only safe guide for the interpretation of an article or articles of an organic instrument like our Constitution is the language employed, interpreted not narrowly but fairly in the light of the broad and high purposes of t'hc Constitution, but without doing violence to the language. To interpret Art. 248 in the way suggested by the respondent wo.!ld in our opinion be _to_ do violence to the language. G **H** We are, however, glad to find from the following extracts from the debates that our interpretation accords with what was intended. Entry 91 in the draft Constitution corresponds to the present Entry 97, List I. Article 217 of the draft Constitution corres ponds to Art. 246 of the Constitution. Art. 223 of the draft Constitution corresponds to Art. 248 pf the Constitution. While dealing with· entry 91 List I of the draft Constitution, Sardar Hukam Singh moved the fo!lowing amendment : "That in entry 91 of List I, the word 'other' be deleted." Extracts from the debates on the proposed amendment are reproduced below : _Sardar H ukam Singh_ (Constituent Assembly Debates, Vol. 9 page 854) : ....................... . **•constituent Assembly Debates Vol.** **7,** **p,** **232.** 56 SUPREME COURT REPORTS (1972] 2 S.C.R. "The object of this entry 91 is, whatever is not included in Lists II and III must be deemed to have been included in this List. I feel that it could be said in very· simple words, if the word 'other' were omitted, .and then there would be no need for this list absolutely. Ultimately, it comes to this that whatever is not covered by Lists II and III is all embraced in the Union List. This could be said in very Sim[>le word.s and we need not have taken all this trouble· which we have take.n." ,• _Mr. Naziruddin Ahmad_ (Constituent Assembly Debate's, Vol. 9 page 855): "Mr. President, $ir, I do not wish to oppose entry .91. It is too late to do it, but I should submit that the moment we adopted entry 91,-it would involve serious redrafting of certain articles and entries. Under article 217 we have stated in substance that entries in List I will belong to Union, List II to States and List III common to both. That was the original arrangement 'under which we started. We took the scheme lrom the Governm~nt of India Act. When an entry No. 91, article 217 '!nd a few other articles would that the residuary _power should be with the Centre. This was an innovation, as there was nothing like it in the Government of India Act. As soon as we accept entry No. 91, article 217 and a few other articles would require redrafting and entries l to 90 would be redundant. In fact all the previous entries--from I to 90 would be rendered absolutely unnecessary. I fail to see the point now retaining entries I to 90. If every subject which is not mentioned in Lis!s II and III is to go to the ·Centre what is the point in enumerating entries 1 to 90 of List I ? That would amount to absolutely needless, cumbersome detail. All complications would be avoided and matters simplified by redrafting article 217 to say that all matters enumerated in List II must belong to the States, and all matters enumerated in List ill are assig• ned to the Centre and the States c.oncurrently and that every other conceivable subject must. come within the purview of the Centre. There was nothing more simple or logical then that. Instead, a long elaborate List has been needlessly incorporated. This was because List I was prepared in advance and entry No. 91 was inserted by way of after thought. As soon as entry 91 was accepted, the drafting should have been altered accordingly. Article 217 should have been re-written on the above lines and matters would have been simplified. Mny I suggest even at this late stage that these needless B c D J E F G 11 ., . .. l A B c D E F G H 57 UNION _V._ H. S. DHILLON ( _Sikri,_ C.J,) entries be scrapped and article 217 be re-wri'tten and things made simple ? I had an amendment to that effect but I did not move it because I know that any reasons behind an amendment would not be deemed fit for consideration by the House." _Prof. Shibban_ _Lal_ _Saksena_ (Constituent Assembly debates, Vol. _9_ page 855-856) : "Sir, today is a great day that we are passing this entry ahnost without discussion. This matter has been the subject of discussion in this country for several years for about two decades. Today it is being allowed to be passed without any discussion. The point of view of Mr. Naziruddin Ahmad is not correct. In fact Dr. Ambedkar has said that if there is anything left, it will be .included in this item 91. I therefore think that it is a very important entry. There should not be any deletion of items 1 to 90. I know this entry will include everything that is already contained in the first 90 entries as well as whatever is left. This entry will strengthen the Centre and weld our nation into one single nation behind a strong Centre. Throughout the last decade the fight was that provincial autonomy should be so complete that the Centre should not be able to interfere with the provinces, but now the times are changed. We are now for a strong Centre. In fact some friends would like to do away with provincial autonomy and would like a unitary Government. This entry gives powers to the Centre to have legislation on any subject which has escaped the scrutiny of the House. I support this entry." _The Honourable_ _Dr._ _B._ _R._ _Ambetlkar_ (Constituent Assembly Debates, Vol. 9, page 856-857) : "My President, I propose to deal with the objection raised by my Friend Sardar Hukam Singh. I do not think he has realised what is the purpose of entry 91 and I should therefore like to state very clearly what the purpose of 91 in List I is. It 1s really to define a limit or scope of List I and I think we could have dealt with this matter. _vi::. .._ of the definition of and scope of List II and 111 by adding an entry such as 67 which would read: "Anything not included in List IT or III shall be deemed .to fall in List 1~. That is really the purpose of it. It could have been served in two different ways, either having an entry such as 5-L256 SnpC 1'72 58 SUPREME COURT REPORTS (I 972] 2 S.C.R the one 91 included in List I or to have an entry such as the one which I have suggested.-'that anything not included in List II or III shall fall in List l'. That is the purpose of it. But such an entry is necessary and there can be no question about it. Now I come to the other objection which has been repeated if not openly at least whispered as to why we are having these 91 entries in List I when as a matter of fact we have an article such as 223 which is called residuary article which is 'Parliament has exclusive power to make any Jaw with respect to any matter not enumerated in the Concurrent List or State List'. The01etically I quite accept the proposition that when anything which is not included in List II or List III is by a specific article of the Constitution handed over to the Centre, it is unnecessary to enumerate these· categories which we have specified in List I. The reason why this 1s done is this. Many States people, and particularly the Indian States at the beginning of the labours of the Constituent Assembly, were very particular to know what are the legislative powers of the Centre. They wanted to know categorically and particularly; they . were not going to be satisfied by saying that thP Centre will have only residuary powers. Just to allay the fears of the Provinces and the fears of the Indian States, we had to particularise what is included in the symbolic phrase "residuary p01yers". That is the reason why we had to undergo this Jabour, notwit,hstanding the fact that we had article 223. I may also say that there is nothing very ridiculous about this, so far as our Constitution is concerned, for the simple reason that it has been the practice of all federal constitutions to enumerate the powers of the Centre, even those federations which have got residuary powers given to the Centre. Take for instance the Canadian Constitution. Like the Indian Constitution, the Canadian constitution also gives what are called residuary powers to the Canadian Parliament. Certain specified and enumerated powers are given to the Provinces. Notwithstanding this fact, the Canadian constitution, I think in article 99, proceeds to enumerate certain categories and certain entries on which the Parliament of Canada can )(lgislate. That again was done in order to allay the fears of the French Pro-. vinces which were going to be part and parcel of the Canadian Federation. Similarly also in the Government of Iridia Act; the same scheme has been laid A B c D E F G H 59 A B c _D_ E F G H It seems to us that this discussion clearly shows that it was realised that the old entry 91 would cover every matter which is not included in Lists II and Ill, and that entries were enumerated in List I following the precedent of the Canadian Constitution and also to inform the provinces and particularly the Indian States as to the legislative powers the Union was going to have. The same conclusion is also arrived at if we look at some of the speeches made when the third reading of the Constitution was taken up. Extracts from those speeches are reproduced below: _Shri Alladi Krishnaswami_ _Ayyar_ (Constituent Assembly Debates, Vol. 11, 838) : "In regard to the distribution and allocation of legislative power, this Assembly has taken into account the political and economic conditions obtaining in the country at. present and has not proceeded on any _a_ _priori_ theories as to the principles of distribution iR the constitution of a Federal Government. In regard to distribution, the Centre is invested with residuary power. specific subjects of national and all-India importance being expressly mentioned." _Shri T._ _T._ _Krishnamachari_ (Constituent Assembly Debates, Vol. 11, 952-954) : "I would in this connection deal with a point raised regarding the vesting of the residuary powers. I think more than one honourable Member mentioned that the fact that the residuary power is vested in the Centre in our Cons~itution makes it a unitary Constitution. It was. I thmk. further emphasised by my honourable UNION _v._ H. S. DHILLON _(Sikri,_ C.J.) down there and section 104 of the Government of Indian Act, 1935 is similar to article 223 here. It also lays down the proposition that the Central Government will have residuary powers. Notwithstanding that, it had its List I. Therefore, there is no reason, no ground to be over critical about this matter. In doing this we have only followed as I said, the requirements of the various Provinces to know specifically what these residuary powers are, and also we have followed well-known conventions which have been followed in any other federal constitutions. I hope the House will not accept either the amendment of my Friend Sardar Hukam Singh nor take very seriously the utterings of my Friend Mr. Naziruddin Ahmad." 60 SUPREME COURT REPORTS [1972] 2 S.C.R. Friend Mr. Gupta in the course of his speech. He said : 'The test is there. The residuary power is vested in .the Cl:ntre.' I am taking my Friend Mr. Gu pt.a qmte seriously, because he appears to be a carefµl stud~nt who has called out this particular point from some text book on federalism. I would like to tell honourable Members that it is not a very important matter in assessing whether a particular Constitution is based on a federal system from the point of view whether the residuary power is vested in the States or in the Central Government. Mr. K. C. Wheare w))o has written recently a book on Federalism has dealt with this point." "Now if you ask me why we havf~ really kept the residuary power with the Centre and whether it means anything at all, I will say that it is because we have gone to such absolute length to enumerate the powers of the Centre and of the States and also the powers that are to be exercised by both of them in the concurrent field. In fact, to quote Professor Wheare ·again, who has made a superficial survey of the Government of India Act the best point in the Government of Jndia Act is the complete. and exhaustive enumeration of powers in Schedule VII. _To_ _m)l_ _mind there seems_ _to be the possibility of* only one pqwer that has not_ _been enumerated, which might be 'exercised_ _in*_ _the_ _f!'ture_ _by_ _means_ _of_ _the_ _use_ _of_ _the_ _residuary_ _power,_ _namely the capital levy_ _011_ _agricultural land._ _This_ _power has not been assigned either to the Centre or_ _to_ _the Units._ _It may be that following the scheme of_ _Estate Duty and succession duty on urban and agricul-_ _tural property, even_ _if_ _the Centre has_ _to_ _take over this_ _power under the residuary power after some time, it_ _would assign the proceeds of this levy_ _to_ _the' provinces,_ _because all things that_ _are_ _supposed to_ _be_ _associated_ _with agriculture_ _are_ _assigned to the provinces._ I think the vesting of the residuary power is only a ma.tier of academic significance today. To say that because residuary power is vested in 'the 0Jntre and not in tl!e provinces this is not a Federation would not be **correct."** A B c D E F G '.. ·• The above speech of Mr. T. T. Krishnamachari shows that the members were a~are that certain known taxes had not been H included specifically in the three lists. **•(ETI1hasis** **suopliP!d),** A B c D E F G H UNION _v._ H. S. DHILLON _(Sikri,_ _C.J.)_ 61 It is, therefore, difficult to escape from the conclusion that in India there is no field of legislation which has not been allotted either to Parliament or to the State legislatures. In _Attorney-_ Gen~ral _for_ _Ontario_ v. _Attorney-Genera/_ _for_ _Canada(!),_ Lord Jow1tt, L.C., recalled the following words of Lord Loreburn, L.C., in _Attorney-General for Omario_ v. _Attorney-General for_ _Canada(')_ and reiterated them: "Now, there can be no doubt that under this organic instrument the powers distributed between the Dominion on the one hand and the provinces on the other hand, cover the whole area ot self-government within the whole area of Canada. It would be subversive of the entire scheme and policy of the Act to assume that any point of internal self-Government was withheld from Canada." The last sentence applies much more to the Constitution of a sovereign democratic republic. It is true that there are some limitations in Part III of the Constitution on the legislatures in India but they are of a different character. They have nothing to do with legislative competence. If this is the true sCOJJe of residuary powers of Parliament, then we are unable to see why we should not, when dealing with a Central Act, enquire whether it is legislation in respect of any matter in List II for this is the only field regarding which there is a prohibition against Parilament. If a Central Act does not enter or invade these prohibited fields there is no point in trying to decide as to under which entry or entries of List I or List III a Central Act would rightly fit in. It was accepted that this test had been applied in Canada, but it was argued that the Canadian Constitution is completely diffe rent from the Indian Constitution. It is true that the wording of ss. 91 and 92 of the Canadian Constitution is different and the Judicial Committee has interpreted these sedions differently at different periods, but whatever the interpretation, it has always held that the lists are exhaustive. The scheme of distribution of Legislative powers between the Dominion and the Provinces is essentiaIIy the same as under our Constitution. In this matter it is best to quote the words of the Judicial Committee or some learned authors rather than interpret ss. 91 and 92 ourselves. In _Canada's Federal System_ by Lefroy it is stated at Jiage 120 as foilows : "In determining the validity of a Dominion Act, the first question to be determined is, whether the Act faIIs within any of the classes of subjects enumerated in (1) [1947] A .. C. 12i, 150. (2) [t9121 A.C. 571, 58t, 62 SUPREME COURT REPORTS [1972] 2 S.C.R. section 92, and assigned exclusively 1;0 the legislatures of the provinces. If it does, then the further question will arise, whether the subject of the Act does not also fall within one of the enumerated classes of subjects in section 91, and so does not still belong to tlie Dominion Parliament. But if the Act does not fall within any of the classes of subjects in section 92, no further question will remain." The learned author cited four Privy Council cases in support of the above statement. In one case _Russel_ v. _The_ _Queen(')_ the Privy Council was. concerned with the validity of the Canada Temperance Act, 1878. In this connection Sir Montague C. Smith, observed : "The general scheme of the British North America Act with· regard to the distribution of legislative powers, and the general scope and effect of secs. 91 and 92, and their relation to each other, were fully considered and commented on by this Board in the case of _Citizens Insurance Company_ v. _Parsons(_ _[2]_ _)._ According to the principle of construction there pointed out, the first question to be determined is, whether the Act now in question falls within any of the classes of subjects enumerated in Sec. 92, and assigned exclusively to the Legislatures of the Province~. If it does, then the further question would arise, _viz. .._ whether the subject of the Act does not also fall within one of the enumerated classes of subjects in Sec. 91, and so does not still belong to the Dominion Parliament. But if the Act does not fall within any of the classes of subjects in sec. 91, no further question will remain, for it cannot be contended, and indeed was not contended at their. Lordships bar, that, if the Act does not come within one of the classes of subjec:ts assigned to the Provincial Legislatures, the Parliament of Canada had not, by its general power "to mak•~ laws for the peace. order, and good government of Canada", full legislative authority to pass it." In Halsbury's Laws of England (Third Edition, Volume 5, page 49?) the rule is put thus : - "In determining the validity of' legislation the general method of inquiry is to ask first, whether the matter comes within the classes expressed by statute to be exclusively within the powers of the provinces; if it does not, the power belongs exclusively to Parliament, but (!) [1881-82] 7 AC _836_ (2) 7. A.C. 96. A c D E F G H 63 A B c D E F G H UNION _v._ H. S. DHILLON _(Sikri,_ C.J.) even if it does appear to come within those classes, the exclusive power still belongs to Parliament if it also falls within the enumerated class within the legislative authority of Parliament." In _Attorney-General_ _for_ _Canada_ v. _Attorney-General for_ _British Columbia('),_ Lord Tomlin, after referring to ss. 91 and 92 of the Canadian Constitution, observed as follows : "Questions of conflict between the jurisdiction of the Parliament of the Dominion and p.rovincial jurisdiction have frequently come before their Lordships' Board, and as the result of the decisions of the Board the following propositions may be stated : ( 1) The legislation of the Parliament of the Domi nion; so long as it strictly relates to subjects of legislation expressly enumerated in s. 91, is of paramount authority, even though it trenches upon matters assigned to the provincial legislatures by s. 92; see _Tenant_ v. _Union Bank_ _of_ _India(')._ (2) The general power of legislation conferred upon the Parliament of the Dominion by s. 91 of the Act _in supplement_ of the power to legislate upon the subjects expressly enumerated must be strictly confined to such matters as are unquestionably of national interest and importance, and must not trench on any of the subjects enumerated in s. 92 as within the scope of provincial legislation, unless these matters have attained such dimensions as to affect the body politic of the Dominion : see _Attrirney-_ _General_ _for_ _Ontario_ v. _Attorney-General for_ _the Dominion(')._ ( 3) It is within the competence of the Dominion Parliament to provide for matters which, though otherwise within the legislative competence of the provincial legislature, are necessarily incidental to effective legislation by the Parliament of the Dominion upon a subject of legis1ation expressly enumerated in s. 91 : see _Attorney-_ _General_ _of_ _Ontario_ v. _4ttorney-General_ _for_ _the_ --~~~~--~ (I} [1930) A.C.lll, 118. (2) [1894] A.C' 31 (3) [189"] A.C. 348. 64 SUPREME COURT REPORTS [1972] 2 _Dominion(')_ and _Attorney-General_ _for_ _Ontario_ v. _Attorney-General_ _for_ _the Dominion(")._ A ( 4) There can be a domain in which provincial and Dominion legislation may overlap, in which case neithe{ legislation will be _ultra vires_ if the field is clear, but if the field is not clear and B the two legislations must meet the Dominion legiSlation must prevail; see _Grand Trunk Ry._ _of Canada_ v. _Attomey-General of Canada(')."_ This statement was approved of in _In_ _re_ _The Regulation, and_ _Control_ _of_ _Aeronautics in Canada(');_ in _In_ _re_ _Silver Brothers._ c _Ltd.(");_ and in _Canadian Pacific Railway Company_ v. _Attomcy-_ _General for British Columbia(')._ It would be noticed that the second propositio11 was based on _Attorney-General for Ontario_ v. _Attorney General for the Domi-_ _nion(')_ and the words "In supplement" are said to have been used for the first time by the Privy Council. D It is quite true, as Mr. Palkiwala points out, that one way of reading ss. 91 and 92 of the Canadian Constitution is that s. 91 gives general powers and then gives certain specific powers by way of illustration, and that apparently was the interpretation placed on the Act by the Privy Council before _A ttomey-General_ _for Ontario_ v. _Attorney-General_ _for_ _the_ _Dominion(')._ But whatever the interpretation, the same test was applied by the Privy Council before-1896 in _Russel_ v. _The Queen(_ _[8 ]_ _)_ and after this case. The learned counsel referred to five cases of this Court and the Federal Court to show that the Canadian cases should not be relied on as the Canadian Constitution was different. It is true that the Canadian Constitution is- different in many respects and for some purposes it would be misleading to rely on the Canadian cases. Jin _Chhotabhai Jethabhai Patel_ v. _The Union_ _of_ _India(")_ the question was the interpretation of entry 84 List I (Duties of excise on tobacco ........ ) and entry 60 List II (Taxes on professions, trades, callings and employments). This Court held that the Canadian cases which were cited before it did not afford any assistance because in Canada analogous problems are always concerned with questions of direct and indirect taxation. We (I) [1894) A.C. 189. (9) [1816) A.C. 34S. (3) (1907] A.C. 65. (4) ]1932) A.C. _54._ (5) [1932] A.C. 514. (6) [1950[ A.C. 122. (7) [1896] A.C. 348. (8) [1882) 7A.C. 829. (9) [1962] Supp. 2 S. C, R. I. E F (, II J ### 1 A l: F t UNION _V._ H. S. DHILLON _(Sikri,_ C.J.) 65 agree that in the interpretation of entry 84 (duties of excise ••.• } it would be misleading to rely on cases dealing with direct and indirect taxation. Similarly, in 1942 in _Province -0f_ _Madras_ v. _Messrs._ _Boddu_ _Paidanna(')_ the Federal Court was concerned with the interpretation of entry 45 List I of the Government of India Act (duties of excise on tobacco .... ) and entry 48 List II (taxes on the sale of' goods and on advertisements). On these matters the Canadian cases could not possibly be of any assistance or relevance, In _State_ _of_ _Bombay_ v. _Chamarbugwala(')_ this Court rightly held that the decisions of the American Supreme Court and the decisions of the Australian High Court and of the Privy Coun· cil on s. 92 of the Australian Constitution should be used \\ [0] .th caution and circumspection, because our Constitution was d;d'erent and it had provided adequate safeguards in cl. ( 6) of art. 19 and in arts. 302-325. In _Atiabari_ _Tea_ _Co._ v. _The_ _State_ _of Assam("),_ this Court was again dealing with art. 301 and art. 304 of the Constitution. Sinha, CJ., speaking for himself, observed that he had deliberately refrained from milking references to or relying upon decisions from other countries like the U.S.A. or Australia. Again in the _A 11tomobile_ _Transport_ ( _Rajasthan)_ v. _The_ _State_ _of Rajasthan('),_ Das, J., referring to the Australian decisions under s. 92, observed : "Valuable as those decisions rnight be in showing how the problem of freedom of trade, commerce and intercourse was dealt with in other federal constitutions, the provisio·ns of our Constitution must be interpreted against the historical background in which out Constitution was made; the background of problems which the Constitution makers tried to solve according to the genius of the Indian people whom the Constitutioni11akers represented in the Constituent Assembly." On the contrary, in _Subrabmanyan_ _Chettiar_ v. _Muttu.nvami_ _Goundan(°)_ while interpreiing s. 100 of the Government of India Act, which corresponds to s. 246 of the Constitution, twyer CJ., observed at p. 200 : "The British North Ari1erica Act, 1867, contains analogous provisions llild it can scarcely be doubted ~-- ~·' .. (l) (1942] F.C.R. 9o. (2) [1957) S.C.R. 874, 918. (3) {196111. S.C.R. 809, 838. (4) [1963] I S.C.R. 491, 511> (5) [ 1940] F.C.R. 188. . 66 SUPREME COURT REPORTS [1972] 2 S.C.R. that Parliament had those provisions in mind when it A enacted the later Act." Then he referred to ss. 91 and 92 of the British North America Act and observed at page 201 : . "As interpreted by the Judicial Committee the British No:th America act presents an exact a:ialogy B to the India Act, even to the overriding provisions in s. 100 (I) of the latter : . "The rule of construction is that general language m the heads of s. 92 yields to particular expressions in s. 91, where the latter are unambiguous." per Lord Haldane in _Great_ _We.11_ _Sadd/ery Co._ v. _The_ _King(')_ C The principles laid down by the Judicial Committee in a long series o.f decisions for the interpretation of the two sections of the British North America Act may ther~fc~re be ac.c~pted. as a guide for the interpretation of similar prov1S1ons m the Government of India Act." D It is true that Gwyer,. C.J., was dealing with the question of pith and substance' and the "true nature and character of the legislation" for the purpose of determining whether it is a legislation with respect to matters in this list or that list bu't at least his judgment shows that where the provisions are similar, the principles laid down by the Judicial Committee, should be accepted as E a guide. Similarly, Varadachariar J., observed at p. 235 : "It seems to me necessary to point out that the assumption in the Patna case that the scheme of s. 100 of the Constitution Ace is radically different from that of ss. 91 and 92 of the British North America Act is not warranted. A Jong line of decisions beginning at least as early-as _Citizen Insurance Company_ _of Canada_ v. _Parsons(')_ have interpreted these provisions of the Canadian Constitution in a manner that almost assimilates their scheme to that adopted in s. 100 of the Government of India Act. . . . . . . . The position of the Provincial Legislatures under the: Indian Constitution Act in respect of the subjects enumerated in List H, and in relation to the subjects specified in List J is in essence the same as that above stated in regard to the powers of the Provincial Legislature under s. 92 of the British North America Act. It will be clear from the decisions that the rules of interpretation ado11ted in the (1) [19211 2 A.C. 9t, 1 t6 (2) [188t] 7 _ft .._ C. 96. F G H UNION _V._ H. S. DHILLON _(Sikri,_ C),) 67 A B c D E F G H Canadian cases were evolved only as a matter of reasonableness and common sense and out of the necessity of satisfactorily solving conflicts arising from the inevita~ ble overlapping of subjects in any system of distribution of legislative powers. That they need not be limited to any special system of federal constitution is made clear by the fact that in _Gallagher_ v. _Ly1111_ ('), Lord Atkin applied the "pith and substance" rule when dealing with a question arising under the Government of Ireland Act-which did not embody a federal system of at all-and in _Shannon_ v. _Lower M ainlalld_ _Dairy_ _Pro-_ _ducts Board(_ _[2]_ _),_ when dealing with a Canadian case, he embodied in the judgment the principles enumerated in the Irish case." It was said that we would be destroying the federal structure of our Constitution if we adopted this line of enquiry. It seems to us that this test was perhaps applied by this Court in _Gift Tax_ _Officer_ v. Na~areth( [3] ) where Hidayatullah, C.J., observed in dealing with the question of the gift tax : "Therefore, either the pitch and substance of the Gift Tax Act falls within entry 49 of State List or it does not. If it does, then Parliament will hav,e no power to levy the tax even under the residuary powers. If is does not, then Parliament must undoubtedly possess that power under Art. 248 and entry 97 of the Union List." Be that as it may, we are unable to see how the adoption of this mode of enquiry will destroy the federal structure of our Constitution. The State Legislatures have full legislative authority to pass Jaws in respect of entries in List II, and subject to legislation by Parliament on matters in List III. It was also said that if this Wali the intention of the Constitution makers they need not have formulated List I at all. This is the point which was taken by Sardar Hukam Singh and others in the debates referred to above and was answered by Dr. Ambedkar. But apart from what has been stated by Dr. Ambedkar in his speech extracted above there is some merit and legal effect in having included specific items in List I for when there are three lists it is easier to construe List IT in the light of Lists I and IT. If there had been no Lisi I, mll!ly items in List II would perhaps have been given much wider hiterpretation than can be given under the present scheme. Be that as it may, we have the three lists and a residuary power and therefore it seems (I) [1937} A.C. 863, 869. (2) [1938! A.C. 708, 719-720. (3) [1971] 1 S.C.R, 195, 200. 68 SUPl!.EME COURT REPORTS [1972] 2 S.C.R. to us that in this context if a Central Act is challenged as being beyond the legislative competence of Parliament, it is enough to enquire if it is a law with respect to matters or taxes enumerated in List II. If it is not, no further question arises. In view of this conclusion, we now come to the question, _i.e._ whether the impugned Act is a law with respect to Entry 49, List II, or whether it imposes a tax mentioned in Entry 49 in List II _'!_ On this matter we have three decisions of this Court and although these. decisions were challenged we are of the opinion . that they interpreted entry 49 List II correctly. _Sudhir Chand Newn_ v: _Wealth Tax Officer(')_ this Coun was concerned w_ith the validity of the Wealth Tax Act, 1957, as it originally stood. This Court proceeded on the assumption that the Wealth Tax Act was enacted in exercise of the powers under Entry 86, List I. It was argued before the Court that "since the expression net wealth" includes non-agricultural lands and buildings of an assessee, and power to levy tax on lands and buildings is reserved to the State Legislatures by Entry 49 List II of the Seventh Schedule, Parliament is incompetent to legislate for the levy of wealth-tax on the capital value of assets which include non-agricultural lands and buildings. In rejecting this argument the Court observed : "The tax which is imposed by entry 86 List I of the Seventh Schedule is not directly a tax on lands and buildings. It is a tax imposed on the capital value of the assets of individuals and companies, on the valua ti<~n date. The tax is not imposed .on the components of the asset~ of the assessee; it is imposed on the total assets which the assessee owns, and in detennining the net Wealth not only the encumbrances specifically charged against any item of asset, but the general liability of the assessee to pay his debts and to discharge his lawfnl obligations have to be taken into account .. . . . . . . Again entry 49 List II of the Seventh Schedule contemplates the levy of tax on lands .and buildings or both as units. It is nonnaly not concerned with the division of interest or ownership in the units of lands or buildings which are brought to tax. Tax on la~ds and buildings is directly imposed on lands and bmldings, and bears a definite relation to it. Tax · <_>n the capital value of assets bears no definable relation to lands and buildings which may form a component of the total assets of the assessee. By legislation in exercise of power under entry 86 List I tax is contemplated (0 !1969] I S.C.R. 108. 110 B c D E F G H UNION _v._ H. S. DHILLON _\Sikri,_ C.J.) 6S _A_ 8 c D E F G H to be levied on the value of the assets. For the purpose of levying tax under entry 49 List II the State Legislature may adopt for determining the incidence of tax the annual or the capital value of the lands and buildings. But the adoption of the annual or capital value of lands and buildings for determining tax liability will not, in our judgment, make the fields of legislation under the two entries overlapping." It was urged on behalf of the respondent that in _Assistanf_ _Commissioner of Urban Land Tax_ v. _The Buckingham_ & _Carna-_ _lic_ _Co._ _Lid.('),_ this Court held thal a tax on the capital va:ue of land and buildings could be impo,sed under entry 49, List II, but it seems to us that this is not a correct reading of that decision. Reliance is placed on the following sentence at page 277 : "We see no reason, therefore, for holding that the entries 86 and 87 of List I preclude the State Legislature from taxing capital value of lands and buildings under Entry 49 of List 11." The above observations have to be understood in the context of what was stated later. Ramaswami, J., later observed in that judgment as follows : "The basis of taxation under the two entries is quite distinct. As regards entry 86 of List I the basis of the taxation is the capital value of the asset. It is not a tax directly on the capital value of assets of individuals and companies on the valuation date. The tax is not imposed on the components of the assets of the assessee. The tax under entry 86 proceeds on the principle of aggregation and is imposed on the totality of the value of all the assets. It is imposed~OI\· the tofal assets which the assessee owns .and in determining the net wealth not only the encumbrances specifically charged against any item of asset, but the general liability of the as*5see to pay his debts and to discharge his lawful obligations have to be taken into account .. But entry 49' of List II, contemplates a levy of tax on lands and buildings or both as units. It is not concerned with the division of interest or ownership in the units of lands or buildings which are brought to tax. Tax on lands and buildings, is directly imposed on lands and bui!dings and bears a definite relation to it. Tax 1 on the capital value of asse·ts bears no definable rela tion to lands and buildings which may form a component of the total assets of the assessee. By legislation I) [19701 I S.C.R. 268. 70 SUPREME COURT REPORTS [1972] 2 S.C.R. in exercise of power under entry 86, List I tax is contemplated to be levied on the value of the assets. For the purpose of levying tax under entry 49, List II the State Legislature may adopt for determining the incidence of tax the annual or the capital value of the lands and buildings. But the adoption of the annual or capital value of lands and buildings for determining tax liability will not make the fields of legislation under the two entries overlapping. The _two taxes are enti-_ _rely different_ _in_ _their basic concept and fall on different_ _subject matters."_ (emphasis supplied). In _Fift Tax Officer_ v. _D._ _H._ _Nazareth(')_ this Court, while considering the validity of the Gift Tax Ac:t, 1958, considered the scope of legislation under entry 49, List lll. Hidayatullah, C.J., observed: ' "Nor is it possible to read a clear cut division of agricultural land in favour of the States although the intention is to put land in most of its aspects in the State List. But howe:ver wide that entry, it cannot still authorise a tax not expressly mentioned." The Court further observed : "Since entry 49 of the State List c:ontemplates a tax directly levied by reason of the general ownership of lands and buildings, it cannot include the gift tax as levied by Parliament." The requisites of a tax under entry 49', List II may be sum· marised thus : (I) It must be a tax on units, that -is lands and buildings separately as units. (2) The tax cannot be a tax on totality, _i.e.,_ it is not a composite tax on the value of all lands and buildings. A B c D E F _(_ 3) The tax is not concerned with the division of interest in the building or land. In other words, it is not concerned whether one person G owns or occupies it or two or more persons own or occupy it. In short. the tax under entry 49, List II is not a personal tax but a tax on property. It seems to us that this Court definitely held-and we agree with the conclusion-that the nature of the: Wealth Tax imposed ((I) [197111S.C.R.195, 200. H UNION _v._ H. S. DHJLLON _(Sikri, C.J.)_ 71 A under the Wealth Tax Act, as originally stood, was different from that of a tax under entry 49, List II, and it did not fall under this entry. The distinction between a ·net wealth tax' and 'tax on property' is clearly brought out in the following extracts, and supB ports the conclusion arrived at by this Court. Readings on Taxation in Developing Countries by Fird and Oldman elucidates the concept of Wealth Tax as follows, at page 281 : "The term 'net weal th tax' is usually defined as a tax annually imposed on the net value of all assets less liabilities of particular tax-payers-especially individuals. This definition distinguishes the net wealth tax from other types of taxation of net wealth, such as death duties and a capital levy; the former are imposed only at infreqµent intervals-<mce a generationwhile the latter is a one-time charge, usually with the primary purpose of redeeming a wartime national debt. The net wealth tax is really intended to tax the annual yield of capital rather than the principal itself as do death duties or a capital levy, even though it is levied on the value of the principal. Since it taxes net wealth, it also differs from property taxes imposed on the gross value of property-primarily real propertyin a number of countries. The net wealth tax gives consideration to the taxpayer's taxaWe capacity through the deduction of all outstanding liabilities and personal exemptions as well as through other devices, while the property tax generally does not take these factors into account. The net wealth tax is therefore deemed to be imposed on the person of the taxpayer, while the property tax is often deemed to be imposed on an object-the property itself." ' / c D E F In Harvard Law School World Tax Series-Taxation in G Columbia-Net Wealth Tax is defined at page 451 thus : "As a general rule, all debts owed by a taxpayer, whether to residents or to non-residents, are deductible if their existence is established in conformity with the legal requir~ments. The usual test of deductibility, as applied by the Division Qf National Taxes, is whether or not there is an actual, enforceable legal obligation, the amount of which is fixed or computable as on 31 December of the tax year." 72 ·SUJ'REME COURT REPORTS (1972] 2 S.C.R. According to Harvard Law School World Tax Series-. Taxation in Swed·~n-this tax has been levied in Sweden since a long time. Now it is regulated by law enacted in 1947. "Taxable Wealth" has been defined at pa~e 625 as follows : "Taxable wealth consists of the capital value of the taxpayer's assets. as those are defined in the Jaw, to the extent that this value exceeds the capital value of his debts." In Harvard Law School World Tax Series-Taxation in the Federal Republic of Germany-it is stated at page 152 that "the taxes on capital which are summarised in this chapter are the net worth tax, the real property iax, . and the capital levy under the Equalization of Burdens Law." It is further stated thus : "Some of the taxes on capital are deemed to be imposed on the person of the taxpayer while others are deemed to be imposed on an object. Examples of the former are the net worth tax and the capital levy under the Equalization of Burdens Law, while the real property tax and the trade tax on business capital are dassified in the latter category. The main importance of this distinction is that taxes in the first group presuppose a taxpayer with independent legal existence, that is, an individual or a legal entity (juridical person), while in' the case of taxes in the second group, the taxable object itself is deemed liable for the tax, in addition to its owner, so that the taxpayer can be a partnership, association of the civil law, or other combination of persons without separate: legal existence. Taxes of the first type give consideration to the taxpayer's ability to pay, while those of the second type consider merely the value of the taxable object, such as the capital of a business, in the case of the trade tax on business capital, or the assessed value of real property, in the case of the real property tax." In our view the High Court was right in holding that the impugned Act was not a law with respect to entry 49, List II, or did not impose a tax mentioned in entry 49, List II. If that is so then the legislation is valid either under entry 86, List I, read wlth entry 97, List I, or entry 97 List I, standing by itself. Although we have held th~t the impugned Act does not impose a tax mentioned in entry 49, List II, we would like to caution ·that in case the real effect of a Central Act, wl1ether called a Wealth Tax Act or not, is to impose a tax mentioned in entry 49 List II ihe tax may be bad as encroaching upon the .domain of State legislatures. A B c D E F G H A B c D E II G UNlON _v._ H. S. DHILLON _(Sikri, C.J.)_ 73 In this connection the following words of the Judicial Committee may be borne in mind. In _Attorney-General for Canada_ v. _Attorney-General_ _for_ _Ontario(!)_ the Judicial Committee observed: In other words, Dominion legislation, even though it deals with Dominion property, may yet be so framed as to invade civil rights within the Province, or encroach upon the classes of subjects which are reserved to Provincial competence. It is not necessary that it should be a colourable device, or a pretence. If on the true view of the legislation it is found that in reality in pith and substance the lagislation invades civil rights within the Province, or in respect of other classes of subjects otherwise encroaches upon the provincial field, the legislation will be invalid. To hold otherwise would afford the Dominion an easy passage into the Provincial Domain." In _Attorney-General_ _for_ _Alberta_ v. _Attorney-General for_ _Canada(_ _[2 ]_ _)_ the Judicial Committee observed : "It is not competent either for the Dominion or a Province under the guise, or the pretence, or in the form of an exercise of its own.powers, to carry out an object which is beyond its powers and a trespass on the exclusive powers of the other : _Attorney-General for Ontario_ v. _Reciprocal Insurance(_ _[3]_ _); In_ _re_ _The Insurance_ _Act of_ _Canada_ ( •). Here again, matters of which the Court would take judicial notice must be borne in mind, and other evidence in a case which calls for it. 'It must be remembered that the object or purpose of the Act, in so far as it does not plainly appear from its terms and its probable effect, is that of an incorporeal entity, namely, the Legislature, and, generally speaking, the speeches of individuals would have little evidential weight." Although it is not necessary to decide the question whether the impugned Act falls within entry 86 List I, read with entry 97 List I, or entry 97 List I alone, as some of our brethren are of the view that the original Wealth Tax Act fell under entry 86 List I, we might express our opinion on that point. It seems to us that there is a _distinction between a true net wealth tax and a tax which can be levied under entry 86 List I. While legislating in respect of eRtry 86 List I it is not incumbent on Parliament to provide for deduction of debts in ascertaining the capital value of assets. Similarly, it is not incumbent on State Legislatures to provide for (1) [1937] A. C. _355,_ 367. (2) [1939] A.C. 117, 130. (3) [1924] A.C. 328, 342. (4) [1932] A.C. 41. '-L2 56 SupCl/72 74 SUPREME COURT REPORTS [1972J 2 S.C.R. deduction of debts while legislating in respect of entry 49 List II. For example, the State Legislature need not, while levying tax under entry 49 List II, provide for deduction of debts owed by the owner of the property. It seems to us that the other part of entry, _i.e._ "tax on the capital of companies" in entry 86 List I also seems to indicate that this entry is not strictly concerned with taxation of net wealth because capital of a company is in one sense a liability of the company and not its asset. Even if it is regarded as an asset, there is nothing in the entry to compel Parliament to provide for deduction of debts. It would also be noticed that entry 86 List I deals only with individuals and companies but net wealth tax can be levied not only on individuals but on other entities and associations also. It is true that under entry 86 List r aggregation is necessary because it is a tax on the capital value of assets of an individual but it does not follow from this that Parliament is obliged to provide for deduction of debts in order to determ~ne the capital value of assets of an individual or a company. Therefore, it seems to us that the whole of the impugned Act clearly falls within entry 97 List I. We may mention that this Court has never held that the original Wealth Tax Act fell under entry 86 List I. It was only assumed that the original Wealth Tax Act fell within entry 86 List I and on that assumption this entry was analysed and contrasted with entry 49 List II. Be that as it may, we are clearly of the opinion that no part of the impugned legislation falls within entry 86 List I. However, assuming that the Wealth Tax Act, as originally enacted, is held to be legislation under entry 8 6 List I, there is nothing in the Constitution to prevent Parliament from combining its powers under entry 86 List I with its P.owers under entry 97 I. There is no principle that we know of which debars Parliament from relying on the powers under specified entries 1 to 96, List I, and supplement them with the powers under entry 97 List I and art. 248, and for that matter powers under entries in the Concurrent List. In _Subrama_nyan Chettiar_ v. _Muttuswami Goundan(1)_ Gwyer, C.J., while dealing with the validity of the Madras Agriculturists Relief Act, 193 8, observed : "That the provisions of the Act in their application to the decree obtained by the appellant were within the competence of the Madras Legislature to enact does not .seems to me open to doubt. They may be justified by reference to entry no. 4 and no. 15 o:f List ill, perhaps also to entry no. 2 in List II; I do not say that there may not be others,- but these will suffice." (I) [19401F.C.R.188,208~ A B _c_ D E G H UNION _v._ H. s. DHILLON _(She/at,_ _I.)_ 75 In _State of Bombay_ v. _Narothamdas Jethabhai(_ _[1]_ _)_ Patanjali Sastri and Das, JJ., as they then were, relied on both items t ·Bnd 2 of List II of the Government of India Act, 1935, to uphold the Bombay City Civil Court Act, 1948. It was contended that the case of residuary powers was ditf~ rent but we are unable to see any difference in principle. Residuary power is as much a power as the power conferred under art. 246 of the Constitution in respect of a specified item. In _Jn_ _re_ _The Regulation and Control_ _of_ _Aeronauties in_ _Canada(')_ the Privy Council upheld the validity. of a Parliamen tary statute after supplementing the powers under the specified items in s. 91 with the residuary powers. It observed : In conclusion we hold that the impugned Act is valid. The appeal is accordingly allowed and the judgment and order of the High Court set aside and Civil Writ No. 2291 of 1970 in the High Court dismissed. There will be no order as to costs, either here or in the High Court. Sbelat, J. We have had the opportunity to going t!hrough the j~dgl!l~nt of the lear~ed .Chief Justice just delivered. but regret our mab1hty to agree with 1t. The reasons _tor_ our disa~reement are as stated hereinafter. e (1) [1951] S.CR. 51. (2l fl932] A.C. 54,'77. "To sum up, having regard (a) to the terms of s. 132; (b) to the terms of the Convention which covers almost every conceivable matter relating to aerial navigation; and ( c) to the fact that further legislative powers ) A B c D E F G H in relation to aerial navigation reside in the Parliament of Canada by virtue of s. 91, items 2, _5_ and 7, it would appear that substantially the whole field of legislation in regard to aerial navigation belongs to the Dominion. There may be a small portion of the field which is not by virtue of specific words in the British North America Act vested in the Dominion; but neither is it vested by specific words in the Provinces. _As_ _to_ _that small por-_ _tion it appears to the Board that it must necessarily_ _belong to the Dominion under its power_ _to_ _make laws_ _for_ _the peace, order and good government of Canada._ Further, their Lordships are influenced by the facts that the subject of aerial navigation and the fulfilment of Canadian obligations under s. 132 are matters of national mterest-and importance; and that aerial navigation is a class of subject which has attained such dimensions as to affect the body politic of the Dominion. _(emphasis_ _supplied)._ 76 SUPREME COURT REPO!lTS [1972] 2 S.C.R. The Wealth-Tax Act, 27 of 1957, as originally passed in September 1957, imposed, by its sec. 3, tax on the gipital value of net wealih °<.in the relevant valuation date of every individual, Hindu undivided family and company. _Net_ wealth, as defined under sec. 2 ( m), means the amount by which ti1'~ aggregate value computed in accordance with the provisicms of -the Act on all assets belonging to an assessee on the vahiation date is in excess over the aggregati: value· of debts owed by him on such valuation date. Assets, as defined in sec. 2 (e), means property of every descritytion, moveable or immoveable, but does not include agricultural land, growing crops, grass or standing trees on such land. By sec. 24 of the Finance Act, 1969, sec. 2(e) was amended omitting the no_n-inclusion of agricuHural land for the assessment year commencing from April 1, 1970 and for all subsequent assessment years, thus including agricultlural land in the definition of assets. The respondent filed a writ petition in the High Court of Punjab, from out of which the present appeal arises, challenging the validity of the amendment by which the non-inclusion of agricultural land from the assets of an assessec: was done away wi!h. The challenge was based principally on two grounds : ( 1) that such a tax on agricultural land could be imposed under entry 49 in List II in the Seventh Schedule to the Constitution by the Stateli and not by the Union, **and** (2) that even if that was not so, Parliament had no competence to enact aa act imposing such a tax on agricultural land either under Art. 246 read wHh entry 86 in Li.s.t I or under its residuary power under Art. 248 read with entry 97 in that list . **. 1!1** view of the importaQce of the issues involved, the Writ Petition was heard by a Full Bench of the High Court, which, by a majority of four to one, allowed it holding that sec. 24 of the .Finance Act, 1969 to the exient that it included agricultural land within the definition of assets for the purpo[>es of the Wealth-Tax Act, 1957 was beyond the competence of Parliament, and was therefore, _ultra vires_ the Constitution. So far as the first question raised. by the. respondent was concerned, the High Court held, in view of tl\e decisions of this Court in _Sudhir Chandra Nawn_ v. _Wealth-Tax Officer, Calcuita(1)_ _Assistant Commissioner_ _of_ _Urban_ _Land Tax_ & _Ors._ v. _The Buc-_ _kingham_ &: _Carnatic Co. Ltd._ ( [2 ] ) and _Shri Prithvi Cotton Mills_ (I) [1969] 1 S.C.R. 108. (2) [19701 LS.C.R. 268. **B** **c** **D** **p** **G** **H** A B c D E F G H . UNION _v._ H. s. DHILLON _(She/at,_ J.) 77 _Ltd._ v. _Broach Borough Municipality(1)_ to which we shall pre sently come, that a tax levied on th~ capital value ~f all assets taken in their totality under entry 86 m List .I read with Art. 246 or one which included agricultural land and levied under the power conferred by Art. 248 read with entry 97 in List I was not a tax under ·~ntry 49 in List II, that is to say, it was not a tax on lands and buildings, the two taxes being of a different nature, and therefore,. a tax on capital value of all assets, even if it included agricultural land within the meaning of such assets, did not fall within, no~ entrenched upon State power ll!Ldi;.r entry 49 of List II. In the light of these decisions, the High Court felt that entry 86 in List I and ·~ntry 49 in List II covered di!Ierent fields, one net entrenching on 'the other, and that therefore, a tax levied under and by virtue of the former could not be said to entrench on the sphere of taxation of lands and buildings reserved to the State~. On the second issue, the High Court acceptec!, the wntentions urg~d on behalf of the respondent that (a) in the light of the relevant entries in the Lists the Constitution, by and large, left the subject of agriculture and agricultural land both as regards legislation and taxation to 'the States, ( b) that in the light of that constitutional policy, the Constitution excluded from the field o.f entry 86 in List I the power to impose the tax on the capital value of agricultural land, and (c) that that being so, it could not be held that the residuary power contained in Art. 248 read with entry 97 in List I included the power to levy a tax of the kind contemplated in entry 86 so as to take into its sweep agricultural lands ·~xpressly exc!1,1ded therefrom and thus n:illify the restriction or exclusion of that class of property. Therefore, the Union could not resort to Art. 248 and or entry 97 in List I to jnstify the deletion of the non-inclusion of agricultural land by sec. 24 nf the Finance Act, 1969 . . M.r. ~et~lvad challenged the correctness of 'the High Court's ma1onty 1uugment. Relymg on Art. 248 and entry 97 in List I, he argued that under the federal scheme of our Constitution the policy was to vest 'the residuary powers in the Centre, that the Hig~ Court had misapprehended the true interpretation of entry _9?_ 111 List I and was 1herefore in error in holding that that entry did not contam the power to levy a tax of the kind we have here on agriculturnl land, though that power was withheld in entry 86 in 1:-ist I. His conto:ntion was that the power to levy a tax on capital value of agncultural land was derived from Art. 248 and entry 97 in List I, as it was not a matter enumerated in Lists JI and III, and therefore, fel! squarely under .entry 97. That in brief was the sum total of .his contentions. He did not argue on the (I) [1970] 1 S.C.R. 388. 78 SUPREME COURT REPORTS p972] 2 S.C.R. first question as it was decided by the High Court in his favour. Counsel for the respondent contested the correctness of the contentions urged on behalf of the Union of India and, after an elaborate analysis . of the relevant entries and the Anicles, supported the majority jµdgment of the High Court. Before we proceed to examine these rival ·contentions i [1] l is necessary to set QUt broadly the scheme of distribution of legislative powers between the Union and tlle States laid down in Ch. I of Part XI of rthe Constitution. Under Art. 245, Parliament can mak~ laws for the whole or any part of the territory of India and the State Legislatures for the whole or part of their respective States. The differenl'ltopics or matters of legislation are set out in the three Lists in the Seventh Schedule. List I, known as the Union List, .enumerates topics of legislation in respect of which Parliament has exclusive power to make laws. List II, known as 'the State List, likewise, enumerates topics of legislation in respect of which State Legislatures have exclusive power·-to make Jaws. By reason of .the _non-obstante_ clause in cl. (1) of Art. 246, if there is a conflict or overlapping of th>.:: subject-matter of legislation, it is tbe Jaw made by Parliament which prevails over the State law. List III, called the Concurrent Lis_t, has topics in res pect of which both Parliament and the State Legislatures have power to m<_!ke laws. Again, as a result of the _non-obstante_ clause i.n cl. ( 1) of Art. 246, if there is any inconsistency between the laws made by Parliament and the laws made by State Legislatures, both acting under cl. ( 3) of Art. 246 and List III. that is resolved by making the law passed by Pariiament to prevail over the State law. So Jong as the P<_!rliamentary law continues, the State law remRins inoperativ_e. bu·t becomes operative ono~ the Parliamentary law is removed. Under cl. ( 4) of Art. 246, Parliament has the power to m11ke laws with respect to any matter including those in List II for any part of India not iJJcluded in a State, _e.g.,_ Union territory. Art. 248 declares rthat Parliament has the exclusive power to legislate on matters not enumerated in List III or List II and to impose a tax not mentioned in either of those Li~ts. To avoid any doubts, entry 97 is inserted in List I, which sets out the field of legislation thereunder as follows : "Any other matter not enumerated in List II or List HI including any tax not mentioned in either of those Lists." Art. 246 thus lays down the powers of the respective legislatures in respect of the matters enumerated iii the three Lists. Where those Lists come into conflict, the _non-obstanu_ clause in els. (I ) and _(2)_ shows that List I has priority over Lists ill and II, and List III has priority over List II. D.!spite the dominant part A B c D E F G B A B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ J.) 79 given to Parliament in this Article, th.e State legislatures, however, have the exclusive jurisdiC'tion over matters set out in List II and the principle underlying the _11011-obsta11te_ clause can be resorted to only in cases of conflict which are not caru1.ble of being reconciled. [see _In_ _re_ _C.P._ & _Berar_ _Act, No._ _XIV of_ 1938(1)]. Unlike some of the constFtutions with a foderal and distributive system of powers, our Constitution, in consonance with its being a centrally oriented Constitution, has conferred on Parliament under Art. 24~ "exclusive power to make any law with respect to any matter not enumerated in the Concurrent List or State List". Such power includes also the power "of making a law imposing a tax not mentioned in either of these Lists". The expression "any matter not enumerated in the Concurrent List or State List" in Art. 248 must mean, in the context oh:!. (I ) of Art. 2'46, which gives Parliament exclusive power in respect of matters in List I, any matter other than those enumerated in any of the three Lists. Obviously, the residuary power given to Parliament in Art.,248 cannot include power which is exclusively giver1 to Parliament on matters in List I already conferred under cl. ( 1 ) of Art. 246, so tha1 an attempt to distinguish the words "any matter" in Art. 248 and "any other matter" in entry 97 in Li~t I is a distinction without difference. There had to be difference in language in the two provisions in the context of the content of entry 97 as that entry speaks about matters other than those enumerated before in List I and those enumerated in the other Lists. Notwithstanding the fact that the residuary power has been vested in the Central Legislature under Art. 248 and its consequence translated in entry 97 in List I, there can be no gain saying that the idea was to assign such residuary power over matters which at the time of framing the three Lists could not be thought of or contemplated. This is clear from the fact, as poin ted out by counsel, that the Lists contain as many as 209 matters which are couched in careful and elaborate words with inclusive and excluding language in the case of some, which has made the Constitution, JO use the words of Gwyer, C.J., in _In_ _re_ _the C.P._ & _Berar_ _Act No._ _XIV_ _of_ 1938,(') "unique among federal constitu tions in the length and detail of its legislative Lists". In the layput of such elaborately worded matters in the Lists and in the context of Art. 246(1), the re;iduary power contained in Art. 248 and entry 97, List I must be construed as meaning power in respect of matters not enumerated in any of the three Lists. Such a residuary power cannot, therefore, be ordinarily claimed in respect of a matter already dealt with under an Article or an entry in any one of the three Lists. (!) [1939] F.C.R. 18, at 38. 80 SUPREME COURT REPORTS [1972] 2.S.C.R. Principles of interpretating constitutional provisions, when conflict£ between legislative bodies with separate powers entrusted to them arise are well-settled and need no>t therefore be here re peated. Two of them, however, bear repetition, for, they have a direct bearing on what we are called upon in- this appear to decide. The first one laid down in _Att.-Genl._ _for_ _New South Wales_ v. _Brewery Employees Union(')_ is that although the words of a constitution are to be interpreted in the same way as courts interpret other statutes, it has to be borne in mind, while doing so, that what is interpreted is a constitution, a mechanism under which laws are to be made and not an Act which declares what that law is to be. This is specially so in the case of a federal constitution, with its nicely drawn balance of jurisdictions. Thus, a broad and liberal spirit should inspire those on whom the duty to. interpret falls. Where the language is explicit, it has to be giv~n effect to; it cannot be unduly stretched so that it is distorted to supply any supposed error or omission. The other is, to quote the language of _Att.-Genl. for Ontario_ v. _Att.-Genl._ _for_ _Canada(')_ cited with approval in _Jn_ _re_ _/he Central Provinces_ & _Berar_ _Act_ _XIV_ _of_ 1938(") "if the text is explicit, the text is conclusive, alike in what it directs and what it forbids". If the text is ambiguous, _i.e.,_ where the words establishing two mutually exclusive jurisdictions are wide enough •to bring a particular power within either, recourse must be had to the context and the scheme of the Act. The pre. _I_ 8 c D E F G H sumption, unless there is anything _tp_ the contrary, is that the power is not withheld or that it does not ex.ist at all; is it there in some quarter. To ascertain where it is, it becomes necessary at the very threshold to know the nature of the impugned tax. The Act is designated by itsnrst section-the Wealth Tax Act, 1957. Though it is the subs~ance and not the form or designation which matters. the Act was passed, as conceded by Mr. Setalvad, in exercise of the power contained in Art. 246 (I) tead with entrv 86 of List I. Under sec. 3, what was originally charged. was the capital value of the net wealth of an assessee, such net wealth having to be arrived at by taking into consideration the total assets excluding the agricultural land held by him as defined by sec. 2(e} and sec. Z(m}. The fact that it is the capital value of the net w~alth. computed after deducting from the gross wealth 'the debts and liabilities of the assessee or the fact that it excluded agricultural land from out of the total assets, _prima facie._ did not render the tax anythinl!: else than the weal1h tax as the Parliament legislatively declared it to be. A legislature may, either as a m~tter of policy or because its power is a restricted one, exclude or not include within the ambit of a tax, which it enacts, certain assets and may (I) [1908) 6 C. L. R. 469, 611. (2) [1912] A.C. 571. (3) [1939] F.C.R. 18, 31 A B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ _J.)_ St tax 1the rest. It may also decide that in fairness and justice to the assessee the tax shall be imposed not on the gross amount but on the net amount arrived at after deducting his debts and liabilities. That fact by itself would not mean that it is a tax any the different from what the Legislature itself d·~clares it to be. Fortunately, we do not have to consider in details the nature,. of !he tax con'lemDlated by entry 86 in List I and that under the impugned Amending Act in the light of works on Public Finance and other allied subjects, as the Act has no more than one occasion been upheld by this Court as one falling under entry 86 of List I. Even counsel for the Union conceded that the Act as originally passed in 1957 was a 'tax falling under that entry. Since, however, the question as to !he nature of a tax on the capital value of a1sets was debated at one stage of the hearing of the appeal, we may briefly set out the views of some of the writers on public finance brought to our notice. Entry 86 in List I, as aforesaid, deals with a tax on the capital value of the assets, exclusive of agriculttiral land of an individual, Hindu Undivided Family or a company. Tax on th·~ capitaf of a company, which is the other tax mentioned there, is left out from consideration as we are not concerned with such a tax for the present. The question is. whether the tax imposed under the Wealth Tax Act, 1957 is a tax on the capital value of the as1ets? The tax is imposed on the net wealth (sec. 3), which mearis value of assets. an assessee holds on the valuation dat·~ (sec. 4). The net wealth is arrived at by computing the value in the manner provided in the Act and deducting therefrom all debts and liabilities. The tax is one on ·the capital value of the 'total assets and though each asset is valued separately, the tax is assessed on the value of all the assets (except agricultural land) as a whole. It was. however. said tha't the tax levied under the Act is different from the tax on the capital value of the assets as contemplated by en tr:.· 86 in List I for two reasons; (a) that it do~s not take in all 1 thc asse!s inasmuch as it excludes agricultural land. and (b) that it computes net wealth by deducting the debts and liabilities of the assessee. The fallacy in such an argument lies in the confusion hetwecn the basis of the tax and its incidence. Th·~ basis of the tax is the capital value of the assets ·~xcept agricultural land. Agricultural land had to be excepted from the tax by reason of the restricted legislative power granted in respect of the subjectmatter in entry 86. The power in respect of that subject-matter in its turn was restrict•w by a definite policy in distributing power under which th.~ field of )egislation in agriculture was left _to_ the States as was also the case under the Government of India Act, 1935. The exclusion of agricultural land from entry 8,6 would not by itself, therefore, mean that the tax is not one on the capital value of assets. In determining the incidence. the legislature may· 82 SUPREME COURT REPORTS [1972] 2 S.C.R. .as well take into account various factors such as fairness to the .assessee and tax the capital valu.e of his net wealth by allowing .deduction of his debts and liabilities from the gross value. That .again would not change the character of the tax. Prof. Nicholas .Kaldor, who is regarded as the person on whose recommendations .in his Report·on Indian Tax Reform, 1956 the wealth tax was .imposed, himself thought that the tax fell under entry 8 6 in List I. - His recomrrrendation was that on the grounds of both equity and administrative efficiency, the tax should be comprehensive, _i.e.,_ eX!tending to all forms of property, but that such a tax which would .foclude agricultural land would necessitate a constitutional amend ment. He would not have stated so 1 if he thought the tax, he was suggesting, did not fall under entry 86 in List I.(') According to Tanabe, the term "Net Wealth Tax" is a tax annually imposed on the net value of all assets !es~ liabilities. Such a deduction distinguishes the tax from property taxes, in that it is not directly -on the property and unlike tax·~s, such as death duties and capital levy, it takes into consideration the taxable capacity of the assessee by deducting his debts and liabilities from the gross value of his assets. The· tax, therefore, is on the person of th.e assessec as against the property tax which is imposed on the property itself directly('). In Sweden also, where the wealth tax has been a "feature of •tho~ tax structure, taxable wealth is defined as the capital value· of an assessee's assets at the end of his income year to the extent that that value exceeds the capital value of his debts('). A B c D The basis of the wealth tax thus is the capital value of the assets E ·held by an assessee on the rdevant-valuation date. The fact that· a particular tax excludes one or more of the assets or allows from its incidence certain deductions, such as debts and liabilities, per tain to the field of computation and not the basis of the tax which is the capital value of assets. lnde>~. in all cases which have so far come up before this Court or before the High Courts, it was never the ccnofention of the Union of India that the Wealth Tax Act did not fall under entry 86 in List I. F In _S._ C. _Nawn_ v. _Wealth Tax Officer('),_ an order of assessment an<J penalty, and notices of demand for •th.e recovery oi the tax under the Act were challenged on three grounds; (i) that the tax was chargeable only on the accretion of wealth during the G financial year, _i.e.,_ on the wealth whieh accrued during the accounting year. (ii) that it could not have been the intention of Parliament to charge the same assets or wealth year after year, and (I) Prof. Kaldor, _Report o• lndia• Tax Reform,_ (1956), p. 26. (2) Richard M. Bird and Oilver Oldman, _R•adiNKS_ _on_ _Taxation_ _In_ H _0-/op/nf Countri•s,_ p. 281. **(3)** **William** **Barnes,** _**World Tax Series, Tqxatiun**_ _**in**_ _**Sweden,**_ **p.** **617.** (4) (1969] I S.C.R. 108 UNION _v._ H. s. DHILLON _(She/at,_ J.) 83 A A (iii) that since 'the "net wealth" as defined by the Act included non-agricultural lands and buildings and ·~ntry 49 in List !I reserved the power to impose tax on lands and buildings to the States, the tax suffered from legislative incompetence. This Court rejected all the three corrtentions and held that s. 3 of the Act charged the capital value of net wealth on the corresponding valuB ation date, and was not on accretion of w.~alth only during the accounting year and since the last valuation date, _i.e._ that it was not on accrual basis; that the Constitution did not contain any inhibition against the same subject-matter hieing charged from year to year, that the tax was imposed under entry 86 in List I. that it was not a tax directly on lands and buildings as it was on c the capital value of the a<'ets of an as<.~ssee on the valuation date the capital value of the a<'ets of an as<.~ssee on the valuation date and _not_ on the different components of ·those assets, that that being so, it was a tax different from the one which could be imposed und·~r entry 49 of List II, and therefore, there was no entrenchment on the Sta!les' power to levy a tax on lands and buildings under that entry. It is true that counsel appearing for the petitioner in that case accepted the position that the subject of the Wealth Tax Act fell within entry 86 of List I because such a position was asrnmcd in an earlier decision of th;s Court in _Banarsi Das_ v. _Wealth-Tax_ _Officer(_ [1] ) and therefore, confined his challenge IO the ground of encroachment on States' power under entry 49 of List II. But the following passage from the report at page 111 shows that the Court agreed with the position accepted by counsel and held that the subject-ma'tter of the Act fell under entry 86 of List I : ''Tax on lands and buildings is directly imposed on lands and buildings and bears a definite relation to it. Tax on the capi'tal value of assets bears no definite relation to lands and buildings which may form a component to the total assets of the assessee. By legislation in exercise of pow~r under entry 86 of List I 'lax is contemplated to be levied on the value of the a55ets. For the purpose of levying tax under entry,49 in List II the State legislature may adopt for determin ing the incidence of tax the annual or the capital value of the lands and buildings. But the adoption of the annual or capital value of lands and buildings for determining tax liability will not, in our judgment, make the fields of legislation under the two entries overlapping." In support of the view that the subject-matter of the Act fell under entry 86 of List I and that there was no overlapping for conflict between such a tax and the one under entry (I) 56 l.T.R. 224. D F G ff 84 SUPREME COURT REPORTS [1972] 2 S.C.R. 49 of List II, the Court cited three decisions in which the It. High Courts of Kerala, Orissa and Myso're had also taken the same view. (see _Khan Bahadur_ C. _K._ _Mammad Devi_ v. _WealthcTax Ofjicer(1), V. B. Narayana Murthy_ v. _Commissioner_ _of_ _Wealth-Tax(_ _[2 ]_ _)_ and _Sri_ _Krishna Rao_ _L._ _Balekai_ v. _Third_ _Wealth-Tax Officer(')._ In _Assistant Commissioner of_ _Urban_ _Land Tax_ v. _Buckingham_ & _Carnatic_ _Co._ _Lid.(')_ the same question was raised, though in a reverse order. The challenge was to the Madras Urban Land Tax Act, 1966 by which a tax was imposed at the rate of 0.4% on the market value of urban land. The Madras High Court upheld the legislaitive competence of the State Legislature to enact the Act, but held it to be violative of Arts. 14 and (19) (1) (f). In the" appeal to this Court against tha't judgment, the contention was that the impugned Act fell und1~r entry 86 of List I and not under entry 49 of List II. Ramaswami, J., who spoke for the Bench, which had on it both Shah, J. (as he then was)_ and Mitter, J., who were also parties to the earlkr judgment, rejected B c the contention holding that in pith and substance the impugned )) Act, in imposing the tax on urban land at a percentage of the market value, fell within entry 49 and did not entrench upon the field of legislation of entry 86, List I. What is important for the present appeal is that h.e held that there was no conflict between entry 86 of List I and entry 49 of List II inasmuch as the basis of the tax under entry 86 would be 'the principle of aggregation E and the tax would be imposed on the totality of the net capital value of all assets, while entry 49 in List II contemplated a levy on lands and buildings or both as units. He also held that in a tax levied under entry 49 of List II, the Madras Legislature, by E tb~ amplitude of power in that entry, was competent to levy it on the capital value of lands and buildings, but because that could also be done under entry 86 of List I in respect of non-agricultural r lands, overlapping would not for that reason alone arise. "The two 'taxes", observed the learned Judge, "are entirely different in their basic concept and fall on different subject-matters". The differentiation between the two powers. thus lay in the agJ!fegation being the basis of the tax under entry 86 of List I. which made the two taxes conceptually different and distinguishable both in their G incidence and the subject-matter of their burden. Both the legislatures can imoose a tax on the capital value of the relevant property but they are, as held by the learned Judge, conceptually different: In _Prithvi Cotton Mills_ v. _Broach Borough Munici-_ _pality(•),_ it was held that after S., C. _Nawn's_ ca5c( [8] ). where the respeotive ambits of entry 86 of List I and entry 49 of List II H (I) 44 1.T.R. 277. (2) S61. T. R. 298. (3) A.1.R. 1963 Mys. lit. 14) (19701 IS C.R. 268. (~) (1970] IS.C.R. 388. (6l [1969] IS.C.R. 108. UNION _v._ H. s. DHILLON _(She/at,_ _J.)_ 85 A were explained, it could no longer be questioned that the State Legislature, in that case of Gujarat, had power under en~ry. 49 of List II to levy a tax on 1he caprtal value of lands and bmldmgs and sec. 99 of the Gujarat Municipalities Act was therefore valid. _Gift_ _Tax_ _Officer_ v. _Nazateth(_ _[1]_ _)_ challenged Parliament's competence to pass the Gift Tax Aot, XVIII of 1958, on 1he ground that entry 49 read with entry 18 of List II reserved the power to tax lands and buildings to the State legislatures and Parliament could not, therefore, use i1s residuary power conferred by Art. 248 and entry 97 of List I. Hidayatu!lah, C.J ., speaking for the Bench relied on _Nawn's_ case( [2 ] ) and drew, as. was done in that decision, the differentiation between a tax directly on lands and buildings and a tax, conceptually different from such a tax, _viz.,_ on the gift of property which might i•n some cases include lands and buildings. "There is no tax upon lands and buildings as units of taxation", he observed. "Indeed, the lands and buildings are valued to jjnd out the total amount of the gift and what is taxed is the gift. The value of the lands and buildin,gs is only the measure of the value of the gift. A gift tax is thus not a tax on lands and building& as such (which is a tax resting upon the general ownership of land and building) but is a levy upon a particular use, which is transmission of title by gift. The two are not the same thing and the incidence of tax is not the same". The validity of the Gift Tax Act was upheld on the ground that since none of the three lists enumernted such a tax, there was no question of Parliament having entrenched upon the State's power under entries 18 and 49 of List II. The Act was held to have been enacted under the residuary power vested in Parliament by Art. 248 read with entry 97 in List I. The aforesaid analysis of _the_ three decisions clearly demonstrates that the discussion therein over the ambits of the Centre's power under_ entry 86 of List I and States' power under entry 49 in List II was neither _obiter_ nor was i1 on any assumption, and that in deciding upon the ambit of the respective powers, the Court made a distinction between a tax directly upon lands and buildings as units by reason of ownership in such lands and buildings (which would fall under entry 49 of List II), and a tax on the capital value of the total assets barring agricultural land which would fall under entry 8 6 of List I, which, in 1he words of Ramaswami, J., in the case of the _Madras_ _Urban_ _Land Tax_ _Act(_ _[3 ]_ _)_ was conceptually different by reason of its characteristic of aggregation as held in _Nawn's_ case(') and different in its sub ject-matter as well as incidence. In all the three cases, the question directly arose on account of the nature of the challenge (l) [1971] I S.C.R. 195. (2) [1969] 11.C.R. 108. (3) [1970] I S.C.R. 268. .. B c D E r G H 86 SUPREME COURT REPORTS (1972] 2 S.C.R. involved in each o.f them as to the scope of power under entry 86 of List I in the first case, under entry 49 of List II in the second case and under entry 49 read with entries 18 of List II and 97 of List I in the third case. The Wealth-Tax Act, 1957 has thus been. clearly held to fall under Art. 246(1) read wi~ entry 86 of List I both in _Nawn's_ case(1) and in the case of the _Madras_ _Urban Land Tax Act,_ 1966(') where, as already stated, the contention was that that Act did not fall under entry_ 49 of J,ist II but under entry 86 of List I. The enunciation of the concept of aggregation in _Nawn's_ case(') and tha't of conceptual difference in the _Madras Urban Land Tax Act's_ case{') and both adopted in the case of _Gift_ _Tax_ _Act(_ _[3 ]_ _)_ for the purpose of delineating the respective powers of the Centre and the States have decisively brought the WeaHh Tax to fall under entry 86 of List I. Such being the position, a valid tax on the capi'tal value of assets including agricultural land cannot be imposed under the power under Art. 246 (I) read with entry 86 in List I as entry 86 in List I, which is the only entry aU'thorising such a tax, restricts in express tenns the power to impose a tax on the capital value of assets, exclusive of a11ricultural land, of individuals and companies. It is true that these entries are _enwneratio simplex_ of broad categories. A catena of cases have laid down that they should be construed in a liberal spirit so as to include within each of them all that is subsidiary and incidental 'to the power thereunder enumerated. But an interpretation of the content and scope of such power, however liberal. cannot be adopted to include within i't anything which the entry in positive terms excludes or restricts. Therefore. "hen entry 86 was framed, its restrictive terms made it clear that though Parliament would have the power to impose a tax on the capital value of assets, that power was circumscribed so as not to include in 1he charj!,'~able assets agricultural land. The reason for such exclusion is to be found in the three Lists themselves and the scheme of distribution of fields of legislation and 'taxation therein. A perusal of the Lists indicates that the entire subject of agriculture, including subjects . even remotely allied to it, has been left to the States. Thus, entries 82, 86, 87 and 88 in Ljst I dealing with taxes on income, on capital value of assets, estate and succession duties, all uniformally exclude agricultural land. Likewise, entries 6 and 7 in List III dealing with transfer of property and contracts exclude from their fields of operation agricultural land. On the other hand, entry 41 in that List dealing with custody, management and disposal of (1) [1969] 1S.C.R.108. (2) [1970] 1 S.C.R. 268. (3) [1971] 1 S.C.R.195. A B c D E F G H A B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ J.) 87 evacuee property expressly includes agricultural land. That is for the obvious reason that, involving as it does Indo-Pakistan relations, such a subject could not be left exclusively to the individual States. Entries 14, 18, 28, 30, 45, 46, 47, 48 and 49 in List II, which deal with agriculture and agricultural land, directly or even incidentally, !tave power relating to them to the States. Thus, tax on agricultural income is left to the States and cannot, therefore, be included in any Income-Tax Act enacted by Parliament under entry 82 of List I, by reason of exclusion from that entry of agricultural income although such an Act is on the tota!Vty of the assessee's world income, and its inclusion in entry 46 of List II. A similar result is achieved in the matter of a tax on capital value of assets under entry 86 of List I by the exclusion of agricultural land therefrom and its inclusion in entry 49 of List II. It is now fairly well-settled that under entry 49 of List II a Stat.e legislature can levy a tax on lands, including agri cultural land, on 'the basis of their capital value. Agricultural lands are likewise excluded in the matter of estate and succession duties from the purview of Parliament's power. Under entries 4 7 and 48 of List II, the power to impose those duties in respect of agricu!rtural land has been entrusted to the States. The reason for excluding agricultural land from entry 86 of List I is, therefore, clear, _viz.,_ that under the scheme of distribution o.f powers underlying the three Lists, agriculture with all its subsidiary and incidental aspects including taxation has been left to be dealt with by the States. That was also done in the 1935 Act, for, entries 54, _55,_ 56 and 56A of List I there excluded agricultural land from the purview of income-tax, tax on the capital value of assets, duties in respect of .succession to property anc estate duty leviable thereunder by the Federal Legislature and entries 41, 42, 43 and 43A in Li&t II had allotted that power to the Provincial Legislatures so far as agricultural land was concerned. It is clear that the Constitution has bodily taken and adopted that very principle of distribution while framing the Lists. If the above analysis is correct and the power to levy a tax on the capital value of agricultural land is not to be found in Art. 246(1) read with entry 86 of List I by reason of exclusion therefrom of agricultural land, the question is, where else.is that power located, if at all it is vested in Parliament ? On that question, counsel for the Union urged two contentions. The first was that it is independently located in Art. 248 read with entry 97 of List I. The second was that that Arti~le is Clearly akjn to s. 91 of the British North America Act, 1867, and confers residuary powers on Parliament with respect to any matt~r not dealt with in List II or List III. The argument therefore, was that if a matter is not in either of those two Lists, it 88 SUPREME COURT REPORTS [1972] 2 S.C.R. .must necessarily be held to be with Parliament. Obviously, it cannot be found in List III as that List contains no entry dealing with taxes. Th·~refore, once it is found 1that there is no such power in List II, it must necessarily be with Parliament. Since the power to tax on the capital value of all assets including agri, cuHural land is nei.ther in entry 49 of List II nor in entry 8 6 of List I, the power falls within the residuary power independently granted under Art. 248 (2). Mr. Setalvad conceded that _Nawn's_ case (1) and the two cas·~s following it had been .correctly decided in so far as they hold that the Wealth Tax Act, as passed in 1957, fell under entry 86 of List I. But he urged that since ~. tax on the capital value of assets including agricultural land cannot fall under that entry and 'the Stictes obviously have no power to impose such a tax on the total assets of a person under entry 49 of List II or any other entry in that List, th·~ amending Act must fall under Art. 248 ( 2) and/ or entry 97 of List I. Counsel for the respondent refuted the correctness of both the contentions and argued (a) that the power to impose a tax on the capital value of agricultural land is reserved in entry 49 in List II, (b) •that the power to impose a tax on the capital value of assets held by a 1Jerson has. been enumerated, mentioned and dealt with in entry 86 of List I, which in doing so expressly excludes agricultural land from its ambit, and that that being so, Art. 248 ( 2) providing residuary power cannot be construed to confer a power which, though confef!l"...d under a specific entry, has been deliberately, under the scheme of distribution of powers, excluded, and ( c) ·that entry 86 of List I lays down a restriction, which restriction prevents imposition of such a tax including that on agricultural land under any other entry including entry 97 of List I. Art. 248 by its first clause confers on Parliament exclusive -power to make a law with respect to any matter not enumerated in List III or List II and by its second clause includes in such pow!r the power of imposing a tax not mentioned in either of those Lists. Entry 97 in List I which sets out the field of legislation and taxation under Art. 248 reads as follows : "Any other matter not enumerated in List II or List III including any tax not mentioned in either of those **Lists."** The argument was that the amending Act which deleted the exclusion of agricultural land and thereby included such property within the s.weep of the wealth-tax is competent by reason of the fac! that )he po~er to impose a .tax on the cap~tal value of all assets mcluding agricultural land 1s neither to be found in (I) [19691 1 S.C.R. 108. A B c D E F G H UNION _v._ H. S. DHILLON _(She/at, ]._ ) 89 A entry 86 of List I, nor in entry 49 of List II, nor in List 11_1, and therefore, it falls in enl!ry 97 of List I by reason of the residuary power conferred on Parliament by Art. 248 (2). Such a contention in our opinion is not acceptable. As held in _Nawn's_ case(') and the 'two cases following it, the subject-matter relating to a tax on the aggregate capital value of all the assets B of an assessee is located in entry 86 of List I and granted to Parliament. But, while doing so, !he framers of the Constitution, presumably on the ground that the entire subject of agriculture had, on their scheme of distribution of power, . been allotted to State Legislatures, excluded from the ambit of the power under en.try 86 of List I the power to tax on 1the capi1al value of agricultural land. Constitution makers may, as a matter of principle or policy, C while dealing with or granting power, do so in a qualified or restricted manner, There is no warrant for saying· tha1 ithere must be found vested in one single authority an absolute power to legislate wholly with respect to a given subject('). Indeed, there are sewral ell!tries in Lis•t I, such as entries 9, 52, 53, 54, 62, 64 and 80, which confer on Parliament restricted power, either because D the topics they deal with are distributed between 1he Central Legislature and the State Legislatures or because it was thought proper to confer power with restrictions. Thus, entry 9 of List I, which deals with the head of preventive detention, confers power to make a law on that subject only on the grounds of defence, foreign affairs or the security of India, and entry 3 in List III E for reasons connected with the security of a State, mainl!enance of order or maintenance of supplies and services essential 1o 'lhe community. The power to make a law authorising preventive detention is thus restricted to the six reasons set out in 1the 1wo en1ries and not for any other reason. Tho! power having been so dealt _with, it is impossible 10 say ithat the matter of preventive detent10n is not enumerated or that that which is excluded therefrom F was intended to or must fall under a provision or an entry dealing with re.siduary po:ver. If counsel for the Union were to be right, the Umon can claim the power to make a law for preventive detention on groqnds other than those specified in the two entries on the ground thirt lt has residuary power to do so under Art. 248 and ent.IJ'. 97, List I. If _that were so, ther~ was no point at all in preG scnbmg the reasons m the two entries on which such a law can be enacted by Parliament. The object of providing residuary power was to confer power only in respect of' a matter which was not f<;>reseen or contemp~ated then and which by reasol) of changed circumstaneo~s has ansen and which could not therefore be dealt with when th.~ Lists were framed. To accept fue interpretatior, - H suggested by counsel. fo~ the Union would. mean that though the framers of the c;onst1tut10n dehberately omiNed the power with reference to agricultural land while granting it in respect of the 0) {1969] I $.C.R. 108. (2) Lefroy. _Ca11adia11_ _Federal_ _System_ (1913 ed.) p, 97. 7-L256 Suti. C.T.172 (1972] 2 S.C.R. 90 SUPREME COURT REPORTS rest of the properties, <they at the same time nullified that exclusion by providing power for it in the residuary provision. Su~h a c?ntention cannot be accepted for the reason that no such mten11on can legitima1ely be attributed to the Constitution-makers, who clearly had in their minds a scheme of distribwtion of powers, under which the subject of agriculture including the power of taxation on agricultural land, both on income and on corpus, was handed over to the States. Such an interpreta!tion on Art. 248 and entry 97 in List I finds. support in at least two precedents. In _Subrahmanyan Chettier_ v. _Muthuswami(1),_ the attack on the validity of the Madras Agri culturists Relief Aot, 1938 ori the ground that it fell under the residuary power provided in sec. 104 of the Government of India Act, 1935 and not under List II or List III of the Seventh Schedule to that Act, and that therefore, the Aot suffered from lack of competence of the State Legislature, was turned down. Suleiman, J., at page 212 of the repoit observed : "But resort to that residuary power should be the very last refuge. It is only when all the categories in the three lists are absolutely exhausted that one can think of falling back upon a _non-descript."_ (emphasis supplied). It is true that the Federal Court there was dealing with s. 104 of the J;935 Constitwtion Act under which the Governor-General was authorised to empower either the Federal or a Provincial Legislature to enact a law with respect to any matter not enumerated in any of the lists, including a tax not mentioned in any such List and not with a provision such as Art. 248 or entry 97 in List I. But the only difference between the two is that instead of the residuary power being in the Governor-General, the Constitution has vested it in Parliament. The two provisions are similar and bear the same interpretation especially as the language of Art. 248 closely follows that of sec .. 104 of the 1935 Act. In _Gift Tax Officer_ v. _Nazareth(')_ Hidayatullah, C.J., dealing specificallv with entry 97 in List I, because of his conclusion that the Gift Tax Act, 1958 fell under the residuary field of legislature under that entry, analysed first the scheme of distribution of power under Arts. 245, 246 and 248, and then the impact of the three lists on such distribution. Dealing with Art. 248 and entry 97 in List I, he construed them at pp. 197 and 198 of the report as follows : ''Then there is the declaration in Art. 248 of the residuary powers of legislation. Parliament has exclu (IJ [1940] F.C.R. 188. (2) [1!>71] 1 s.c.R. 195. A B c D E F G H UNION v. H. s. DHILLON _(Shelat,_ J.) 91 A B c D E F G H The Coostitution by Art. 246 (1) has had already granted exclusive power of legislation and taxation to Parliament in matters set out in entries 1 to 96 in List I. Any State law entrenching in its pith and substance upon a Parliamentary Act would be invalid. Having so provided in respect of List I, the only matters left for legislation would be those in Lists II and III and such of the matters not to be found in those two lists. The last, therefore, could only be the residuary matters in respect of which exclusive power had to be granted to Parliament. This must mean that a field of legisla'!ion not dealt with in any of the three lists only could be the subject-matter of residuary power under Art. 248. Such a construction of Art. 248 is in consonance with the construction given by the Federal Court to s. 104 of the Government of India Act, 1935, following which Art. 248 was framed and also with the words of entry 97 in List I. The words in that entry _viz.,_ "any _other_ matter not enumerated in List II or List Ill" must mea!1 any matt:r n?t being in the entries preceding it, that is, entnes 1 to 96 m List I and any matter not enumerated in Li!!! II and List III. The residuary power declared by Art. 248, and of which the ~eld is defined in entry 97 of List I, must, therefore, be the power m respect of a field or category of legislation not to be found in any one of the three Lists. Taxes such as the Gift tax, the expenditure tax and the Annuity deposit sclreme are matters which are nCYt to be found in any of the three lists and therefore, enactments in regard to them would fal! without doubt under Art. 248 read with entry 97 of List I. ' ' sive power to make any law in respect to any matter not enumerated in i\he Concurrent List or State List and thi~ power includes the power of making any law imposing a tax not mentioned in either of those lists. For this purpose, and to avoid any doubts, an entry has also been included in the Union List to the following effect-" He then set out the entry and observed : "The entries must of-course receive a large and liberal interpretation because the few words of the entry are intended to confer vast and plenary powers. If, however, no entry in any of tire three lists covers it, then it must be regarded as a matter not enumerated in any of the three lists. Then it belongs exclusively to Parliament under entry 97 of the Union List as a topic of legislation." It will be noticed th:JJt the learned Chief Justice mentioned all the three lists in this passage while describing the scope of the residuary power of Parliament although both Art. 248 and entry 97 in List I refer to only Lists II and Ill. 92 SUPREME COURT REPORTS p972J 2 s.c.R. But, can it be said rthat a tax on the capital value of assets including agricultural land is one such tax, not mentioned in any of the three lists, and therefore, falls under entry 97 of Lis I? When counsel for the Union opened his cas·~. his con\ention was 'that since entry 86 in List I exclude agricultural Jand therefrom, that field of legislation and tax must be said to be one not enumerated and not mentioned in that List and being a tax on aggregation, conceptually different from one which can be levied by the States under entry 49 in List II, rt is not also enumerated in List II, and therefore, that part of it must be said to fall under the residuary entry 97. The answer to that coµtention depends on the .interpretation which entry 86 in List I bears. In a distributive system of power. whenever a question arises whether a statute is within the power of the appropriate legislature, regard must be had to its substance rather than its form. Once i't is found that there is power, it can be used by the Federal Legislature in as plenary a manner as if it is a power in· a unitary system, subject of course to the express limitations in the Constitution and ~ the necessary freedom of the States to exercise without interference the powers reserved to them. [cf. _King_ v. _Barter(!)]._ As stated earlier, constitutionmakers, while distributing powers, may grant a particular power either absolutely or with qualifications or restnotions. In the latter case, 1though the power can be acted upon in as plenary a way as pOSSible, it can be exercised subject to restrictions imposed in re2ard to it. (cf. _Att.-Gen._ _for_ _the Dominion_ _of_ _Canada_ v. _Att. Gen._ _for_ _the Province_ _of Alberta(_ _[2]_ _)._ The fact that a power is eonferred, not in its entirety, but with a restriction upon it, cannot mean that rthe subiect-matter in respect of H has not been dealt with, and therefore, faUs under the provision dealing with the residuary matters. If the decision in _Nawn's_ case( [3 ] ) and the two decisions following it, were to be adhered to as having been correctly decided, the tax on the capital value of assets of an assessee. excluding that of agricultural iarid falls under entrv 86 in List I. In that view. Parliament must be said to have enacted the WealthTax Act, 1957 in exercise of its exclusive power under Art. 246( 1) read wi'th {hat entry. Ts it possible then to say that by deleting the exclusion of .agricultural land bv s. 24 of the 'Finance Act. 1969 and thereby mcluding agricultural land within the purview of s. 3 of the amended Act, 'the Act ceased to be the Act passed under entry 86 of List I or that it acquired a character different than it had so th.at it ceased to fall under Art. 246 (1) read with entry 86 ' of List I ? The answer has to b~ in the negative. The reason is (I) 6 C.D.R. 41 at 42. (2) [1916) A.C. 588 at 595. (3) [1969] l S.C.R. 108. A B c E F G II A B c D E F G H 'UNION _v._ H. S. DHILLON (S~lm, I.) 93 that, as held in _Nawn's_ case( [1] ), the Act was enacted in pursuance of and under entry 86 of List I, it boing an Act levying a tax on the aggregate capital value of all the assets of an assessee barring agricukural land. It was, therefore, passed under Art. 246( 1) on a matter enumerated in List I in respect of which Parliament had exclusive power. In deciding the question as to the provision under which it was enacted, the distinction between the subject matter of the Act and the scope of power in respect of it bas to be observed. The subject-ma«er of the Act is, as aforesaid, the capital value of the total assets; its scope or field of operation is the capital value of all the assets excluding agricultural land. It is impossible to say that the exclusion of agricultural land in the entry splits the matter into two matters, the permissible and the excluded. The matter is one, _viz.,_ the capital value of all assets except that the power in relation to it is restricted by the exclusion therefrom of one kind of asset. Consequently, it is impossible to say that there are two matters, one permissible under entry 86 in List I and the other not enumerated anywhere else and therefore falling under Art. 248 and/ or entry 97 in that List. If it were so, as contended, the restriction in entry 86 in regard to agricultural land had no meaning. Such a contention would mean that though the draftsman excluded agricultural land from entry 86 of List I, his intention was to nullify that exclusion by including that exclusion in the same breath in the residuary field in Art. 248 and entry 97. But, it was said that if the interpretation of eotries 8 6 and 97 in List I, we COIIlllJend, were to be true, it would mean that neither Parliament nor the State Legislatures can ever levy wealth_.ax on the capital value of all the assets including agricultural land held by an assessee. It is true that under entry 86 of List I Parliament cannot include agricultural land within the purview of the tax imposed under that entry. Nor can a State Legislallure impose such a tax under entry 49 in List II. This does not ~an that a tax on 1he capital value of agricultural land cannot at all be imposed. Such a power is contained in entry 49, List II. But there is nothing surprising in such a consequence, for, even in the matter of income-tax, neither of llhem can impose that tax on the entire income of an asscssce. Parliament cannot do so because o( the restriction in entry 82 in List I; the States cannot impose such a 'tax as their power is restricted to agricultural income only under entry 46 in List II. That is also the case in the mMter of succession and cstaie duties. The power of both ihe Legislatures to make a law or impose a tax on any one of the matters in these entries is restricted, though within the field allocated to each of them, each has a plenary power. The restriction to such a power may, as already ~tailed, be on account of distribution of power in rapect of a particular field of Je~islation between the Union and l1l [1969] l S.C.R. l08. 94 SUPREME COURT REPORTS [1972) 2 S.C.R. !he. State Legislatures or .b_ecause the topic or field of legislation A is itself hedged by cond1hons for reasons of policy. But that does not mean that the excluded or the restricted field, in respect of which either both the Legislatures have no power or one or ihe ~ther h~s no power, can be said to fall under the provisibn providIDg residuary power. .on~e a topic or a field of legislation ii e~umerated and dealt with m any one of the entries in one of the B Lists'. whether the. topic is in _it.s entirety or restricted; there is no quest.ion of the residuary pro".1s10n being resorted to· on the ground t~at 1t operates on the remamder. Such a construction would either nullify ~e intenti?n t.o c~nfer power only on the partial fie!~ of the topic of legislahon m question or set at naught the delicate system of distribution of power effected through the three C elaborately worded Lists. Counsel for rthe Union in his opening address had argued the appeal on the footing that the inlpugned amending Act was no encroachment on the field reserved to the States under entry 49 of List II, as the nature of the tax is such that it could not be levied by any law passed under that entry. His argument then was that the tax fell squarely within the power of Parliament by the combined effect on entry 86 in List I and the residuary power in Art. 248(2) and entry 97 in List I. In his reply, however, he enlarged his argument and urged that once it was found that the inlpugned Act did not entrench on entry 49 in List II, Parliament could inlpose it independently of entry 86 in List I under Art. 248. The argument was that Art. 248 conferred an independent and distinct power on Parliament in all matters nO'I enumerated in Lists II and III. Since List III did not deal with taxes, the only question was whether the impugned tax fell under any entry in the State List. The contention was that Art. 248 was in _pari_ _materia_ with s. 91 of the British North America Act, 1867, and therefore, the proper inquiry, as under that Act, would be whether the impugned tax fell under List Ir and that if it did not, the power must necessarily be held to reside in Parliament. Jn support of this contention be emphasised the words, "Parliament has exclusive power to make any law with respect to any matter not enumerated in the Concurrent List or State List", in Art. 248, and argued that List III not containing any entry with respect to any tax, only List II was relevant. Therefore, in dealing with a queation such as the one before us, the proper . inquiry would be whether the inlpugned tax entrenched upon entry 49 in List II, that being the only relevant entry, and if it were found that it did not, the p0wer must be said to reside in Parliament, in other words, that which is not in List II must be said to be with Parliament. On the assumption that Art. 248 was in _pari_ _materia_ with the first part of s. 91 of the Canadian Constitution Act, he relied on certain D E F G H A B c **D** **F** **F** G **H** UNION _v._ H. s. DHILLON _(Size/at,_ /.} **95** passages from Lefroy's _Canada's Federal System_ (1913 ed.) at p. 120, on _Russel_ v. _The Queen_ (1) and the observations made by the Federal Court in connection with that Constitution in _Subrahman,van_ v. _Muttuswami(')._ He next argueif that entry 49 of List II gave power the States to impose a tax on lands to and buildings; that power was to impose a tax directly on lands and buildings as units of taxation by reason of the ownership of an assessee in such lands and biuldings. Such a tax would be different in concept, subject-matter and incidence from the impugned tax which. was one on the capital value of the totality of assets of an assessee as held in _Nawn's_ ca5e(8). Consequently, such a tax, which the States could not levy under entry 49 in List II, cannot be said to entrench on that power. That being so, the power to levy the impugned tax, including on agricultural· land, must be held to be under Art. 248. The question is; does the Canadian constitution Act furnish an apposite analogy and can the decisions on the interpretation of ss. 91 and 92 of that Act be relied on for the purpose of interpreting the scheme of distribution of legislative power in our Constitution ? ment, or its exclusive power to make laws for peace, order and good government. The third part enumerates twenty-nine classes The ~tructure of s. 91 of the Canada Act falls into four parts. The first in the initial part which says that Parliament shall have power to make laws "for the Peace, Order, and good Government of Canada" in relation to all matters not coming within •the classes of subjects assigned exclusively to the Provincial Legislatures. Lord Watson speaking for the Privy Council in _Att.-Gen. for_ _Ontario_ v. _Att.-Gen._ _for_ _the Dominion(')_ thought that the power contained in this part was supplementary to the powers contained in the next part which sets out twenty-nine classes or heads of subjects. The theory of the first part supplementing the power on the enumerated subjects did not, however, commend it self to Lord Birkenhead in _Canadian Pacific Wine Co. Ltd._ v. _Tulev(")_ and to Lord Atkin in _P1:oprietary_ _Articles Trade_ _Association_ v. _Att.-Gen._ _for_ _Canada(_ _[6]_ _),_ where both of them held in categorical words that it was the first part of the section which conferred poy,-er on Parliament and that the enumerated subjects in the second part merely 'illustrated that cetiain subjects fell under the general description, _viz.,_ "Peace, Order and good Government of Canada". The second part contains the declaration of the exclusive power of Parliament in respect of the classes of subjects there enun~erated. This declaration, however, in no way affects the generahty of power initially assigned to Parlia (I) (1881] 7 App, Cas. 829 at 836. (2) [1940] F.C.R. t88 \3) {196911 S.C.R.108. (4) [1896] A.C. 348. (5) [1921] 2 A. C. 417. (6} [1931] **A.C.** 310. 96 SUPREME COURT REPORTS [1972] 2 S.C.R. or heads of subjeots. The fourth part is contained in the last paragraph which again contains a declaration that any matter coming within any class of subjects enumerated in this section shall not 6e deemed to come within the class of matters of a local A or priv3!le nature comprised in the enumerated classes of sub~ts assigned exclusively to the Provincial Legislature in s. 92. The result is that if a matter falls within any of the twenty-nine heads B enumerated in the third part of 1the section, it i~ deemed not to fall within any class of matter assigned to 1he Provincial Legislatures. The power assigned to the Dominion in the initial part of s. 91, _viz.,_ with respect to matters concerning peace, order and good government and helld 16 in sec. 92, _viz.,_ "generally all matters of a merely local or private nature in the Province" c clearly show that the distributive system in the Canada Act is what has been itermed "interlacing" and not dis.iunctive, where the two would have independent powers assigned respectively to them as in our Constitution. Such an interlacing is further seen from head 29 in the enumerated subjects in s. 91, by which power is given to 1the Dominion in respect of such subjects as are ex- D pressly excepted in the en11meration of the classes of subjects assigned exclusively to tho Provincial Legislatures. c D It was on the basis of such a peculiar scheme of distribution of powers that in _Russel_ v. _Queen('),_ the Privy Council, fo lowing ~ts earlier decision in the _Citizens Insurance Company_ v. _Parsons(_ [2] ), stated that whenever a question arose with regard to the respective powers of the legislatures of the Dominion and the Provinces, the first question 'to be determined would be whether the statute in question fell within any of the classes of subjects enumerated in s. 92. If it did, then only the further question would arise whether the subject of the Act did not fal! within one of the enumerated subjects in s. 91, and so did not still belong 10 the Dominion Parliament But if the Act did not fall within any of the classes of subjects assigned ·~xclusively to 1the Provinces by s. 92, no further question would remain, and the Act would fall within the general words of the first part of s. 91. Since then the . Privy Council have, on several occasions, while construing ss. 91 and 92, made shifts in emphasis. But amidst all the variations there emerges a code of interpretation crystallized into four propositions as summarised by Lord Tomlin in _Att.-Gen._ _for_ _Canada_ v. _Att.-Gen._ _for_ _British Columbia(_ _[3]_ _)._ These were approved in _In_ _re_ _the Regulation and Control_ _of_ _Aeronautics_ _in_ _Canada('),_ _In_ _re_ _Silver Bros._ Ltd.(~), and finally, in _Canadian_ (I) [188ll 7 A.C. 829 at 836. (2) [1881-188217 App. Ca,, 96. (3) !19301 A.C. Ill. (4) [1932] A.C. 54. (S) (19321 A.C.514. E F G H A B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ J.) 97 _Pacific_ _Ra.ilway_ _Co._ v. _Att.-Gen._ _for_ _British Co/umbia(1),_ and therefore, can fairly be said to be well-settled principles of interpretation of these two sections. These are : ( 1) The legislation of the Parliament, so long as it strictly relates to subjects expressly enumerated ins. 91, is of paramount authority, even though it trenches upon matters assigned to the Provincial Legislatures by s. 92. ( 2) The general power of legislation conferred on the Parliament by s. 91 in supplement of the power to legislate upon the subjects expressly enumerated must be strictly confined to such matters as are unquestionably of national interes'I and importance. ( 3) It is within Parliament's competence to provide for matters which, though otherwise within the competence of Provincial legislatures, are necessarily incidental to effective legislation by it upon one of the enumerated subjects in s. 91; and ( 4) There can be a domain in which Provincial and Dominion legislation may overlap, that is to say, where there is overlapping between classes of subjects or heads of legislative power in which case neither legislation would be _ultra_ _vius_ if the field is clear, but if the field is not clear and rthe two lel1'islations meet, the Dominion legislation must prevail('). Providing such a distribution of powers in general terms had· a two-fold ob;ject, (a) to avoid inflexibility, which it was appre hended elaborate lists might result in, and (b) not to have any power reserved or withheld. The clear objective, while framing the Constitution Act, was to model it on the lines of the British Constitution with Parliamentary supremacy as one of its principal features. and therefore, to leave no power uncovered by S-' .• 91 and 92. The preamble of the Act itself declares that its ob1ect was to give a Canada "a Constitution similar i~ principle to th~t of ·the United Kingdom". That and the pecuhar langu~ge ~n ss. 91 and 92 }~d the Privy Council in the _Att.-Gen._ _for_ _0,11tano_ ,., _Att.-Gen._ _for_ _Canada(")_ to observe that the powers d~stnbuted between the Dominion on the one hand, and the Provmces, on the other, covered the whole area of self-government within the whole area of Canada and that it "would be subversive of the· (!) [1950] A.C. 122. (2) Varcoe, ~. P .. _Th• Distribution_ _of Legislative_ _Po•·er_ in Canada (1954 ed.)• pp, 73-78. (l) f19t2] A. c. 571. 98 SUPREME COURT REPORTS [1972] 2 S.C.R. ~hole scheme and policy of the Act to assume othat any part of mtemal self-government is withheld from Canada". As Lefrov .observes (1) : "The scheme of our Federation Act was to have no reserved power; but that there should be, in Canada, the same kind of legisla•tive power as there is in the British parliament, so far as that was consistent with the confederation of the provinces and 'our position as a Dominion within the Empire." Since the British Parliament was the mod.el, pre-eminence was firstly given to the laws mad.e by Parliament, and secondly, provision was made that all powers not expressly assigned to provincial legislatures were to be treated as vested in Parliament. _(Valin_ v. _Langlots(_ _[2]_ _)._ It is thus clear that there is no similarity either in the content ·Or the scheme between the disotributive system in the Canadian Act and that in our Constitution. There is no declaration in general and unspecified terms in our Constitution as there is in the first part of s. 91, nor is there the interlacing of powers brought about by expressions such as "for the Peace, Order and good Government of Canada" and "in relation to all Matters not coming within the Classes of Subjects by this Act assigned exclusively to the Legisla1ures of the Provinces" as in s. 91. The powers of the Union Legislature and the State Legislatures under Art. 246 and the field of legislation delineated in the three Lists are well-defiiued in elaborate and precise terms, and are disjunctive and independent. The State Legislatures are not the delegates of, nor do they derive their powers from the Union Legislature, and enjoy within their fields of legislation plenary powers including the power to legislate on all matters incidental and subsidiary to the matters assigned to them. The question of. pre-eminence of Parliamentary legislation by reason of the _non-obstante_ clause in Art. 24'6 arises only where there is over-lapping of jurisdictions or the law in question is in respect of any of the matters in List III. For the rest, the power of the States is as exclusive in their field as it is of Parliament within its,allotted field. The contention •that the first part of s. 91 of the Canadian Act is analogous to Art. 248 and its second part to Art. 246 (1), and therefore, decisions on s. 91 and s. 92 of that Act apply for the purpose of construing the distribution of powers in our Constitution is unacceptable. It is true that m _Subrahman,van_ v. _Muthuswami(_ _[3 ]_ _)_ Gwyer. _C.1.,_ at p. 200 of the report did speak of the Canadian Act as containing analogous provisions and of the British Parliament (I) at p. _95._ (2) (1879] _5_ App. Cas. 155. (3) [1940] F.C.R. 188. A B c D E G H A B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ _!.)_ 99 having those provisions in mind when it enacted s. 100 of the Government of India Act, 1935. But it is clear from the cantext that those observations were made in connection with overlapping of legislative powers and the preeminence of the Central law in that contingency, and not in relation to the distributive schemes in the two Acts. That decision, therefore, is no authority for the proposition that there is any analogy betweens. 100 of the 1935 Act and s. 91 and s. 92 of the Canadiain Act, 1867. Indeed, at page 200 of the report, the learned Chief Justice talked of "the two lists of mutually exclusive powers" as contrasted.with .the Canadian "interlacing" of powers. That was because none of the parties con cerned with the enactment of the 1935 Act had expressed any desire, as was the case with the Canadian Act, to have a "Constitution similar in principle to that of the United Kingdom". The speech of Sir Samual Hoare, who piloted the Constitution Bill of 1935 in the Parliament on the draft section corresponding to s. 104 clearly shows that there was acute controversy amongst the parties in India regarding the distribution of legislative power!. It was because of that controversy that three Lists had to be made "each as exhaustive as we could make it, so exhaustive, as to leave little or nothing for the residuary field", and therefore, "all that is likely to go into the residuary field are perhaps some quite unknown spheres of activity that neither my Hon. Friend nor I can contemplate at the moment''.(') As a matter of fact, Gwver, C.J., had, only a year ago, uttered a warning against applying decisions on other Constitutions to the provisions of the 1935 India Acit, in foe following words : " ... there are few subjects on which the decisions of other Courts require to be treated with greater caution than that of federal and provincial powers, for, in the last analysis the decision must depend upon the words of the Constitution which the Court is interpreting; and since no two Constitutions ar~ in identical terms, it is extremely unsafe to assume that a decision on one of them can be applied without qualification to another. This may be so even where the words or expressions used are the same in both cases; for a word O: a phrase may take a colour from its context or bear different senses accordingly." In _The Province of Mad;asv._ _M/s._ _Boddu Paidanna_ & _Sons(2)_ the Federal Court, while discussing the powers of taxation of the Centre and the Provinces in <the matter of excise and sales Tax, (I) Cited in N. Rajagopala Aiyanager, _Goi•trnment_ _of_ _Tndia_ Act, 1935, It p, 133, (2) 1942 F.C.R. 90 •t 105. 100 SUPREME COURT REPORTS [1972] 2 S.C.R. brought out the difference between the distribution of powers in A the Canadian and the Indian Acts : "It is natural enough, when considering the ambit of an express power in relation to' an unspecified residuary power to give a broad interpretation to the fonner at the expense of the latter; and this indeed is the principle upon which the Judicial Committee have for the most part ·interpreted ss. 91 and 92 of the British North America Act. The case, however, is different where, as in the Indian Act, there are two complementary powers, each expressed in precise and defin~te tenns." B In _Manikkasundara Bhattar_ v. _Nayudu(_ _[1]_ _),_ the Federal Court c once again uttered similar words of caution, observing that in view of s. 104 of the 1935 Act expresssly providing for residuary power, it would be impossible to apply to the Indian Act the Canadian principle evolved by the Privy Council that one has only to look into the Provincial List for p0wer, which if it is absent there must necessarily be aittributed to the general pool of power in the Dominion : D "In the Canadian Constitution Act there is no provision in respect of omitted subjeots of legislation. Every subjeot must be held to be either within the legislative powers of the Dominion Parliament or of the Provincial Legislatures. Jin the Indian Constitution, s. 104 has been E inserted for the very purpose of enabling legislation to be enacted in respect of subjects omitted from the three Lists in the Seventh Schedule." These pronouncements clearly point out (a) the difference between the two systems/of distribution of power, and (b) the danger of applying Canadian precedents to our Constitution. Since the present Constitution is, as repeatedly stated by this Court, in many ways based on the provisions of the 1935 Act, particularly in the matter of distribution of legislative pov.~rs, what has been said about that Act must equally apply to the Constitution. We may now turn 1to Art. 248. There can be no two opinious that that Article deals with residuary power and that that power is an independent power conferred by that Article and not by entry 97 in List I. It is well settled that entries in the three Lists do not by themselves confer power. They, however, delineate the fields in which the respective powers are conferred on the Legislatures by the relevant Article of the Constitutiqn. The controversy is about the extent of the power under Art. 248. Counsel for the Union availed himself of the fact that the (I) [I 946] F.C.R. 67, 87-88. F G H B c D E F G H UNION _v._ H. s. DHILLON _(She/at,_ _J.)_ 101 Article speaks of 1he Parliament's exclusive pow~r with respect to any m~tter not enumerated in List III or List II and to impqse by law a tax not mentioned in either of the two Lists. True it is that the Article does not speak of List I; in other words, it does not say in express terms that that power is only in respect of matters and 'taxes not enumerated or mentioned in any one of the three Lists. But when one talks about residuary power, the question at once arises : what it is residuary of '? The marginal note to the Article st~nes that the power confeww is residuary. A marginal note can serve as guidance when there is amijiguity or doubt about the 'true meaning of the provision. As earlier stated, Art. 246(1) havin~ given exclusive power ito the Union Legislature, surely the power in t>~spect of the very matters therein provided for could not have been once again granted by Art. 248. Obviously therefore, the residuary power conferred by Art. 248 means power in respect of maNers not dealt with in Art. 246, and not to be found in any of the three Lists. In this connection, Mr. Setalvad hims.elf pointed out to us the debate in the Constitue.nt Assembly on entry 91 in List I (equivalent to the present entry 97 in List I) as instructive and showing the background in which and the purpose for which that entry was inserted in List I. When the entry came before the House, Sardar Hukum Singh and Mr. Naziruddin Alimed thought that if Art. 231 (equivalent to the present Art. 248) meant that all powers not contained in Lists II and III vested in the Centre, enumeration of powers in List I as also the last entry 91 therein were altogether redundant. Sardar Hukum Singh pointed out also that the word "other" preceding the word "matter" in that entry was unnecessary. "If every subject which is not mentioned in Lists II and III is to .go to the Centre," observed Mr. Naziruddin Ahmad, "what is the point of enumerating entries 1 1o 90 in List I". This construction was akin to the one urged before us by Mr. Setalvad, _viz.,_ that one need only turn to Lis1 II, and if the power in question is not there, the power must be assumed to be with the Centre by reason of Art. 248. The point urged by Mr. Naziruddin was at once demurred by Prof. Shibban Lal Saksena who point>~d out that Mr. Naziruddin's point of view was incorrect as "Dr. Ambedkar has said that if th.~re is anything left, it will be included in entry 91." That must mean that if in the enumeratioa of powers in the three Ji~ts any topic of legisla· tion was left out, such a topic would fall in the residuary power conferred on the Centre. Dr. Ambedkar then explamed the purpose for which entry 91 was inse11ted in List I, which he said was to define the limit and scope of List I. That, he poi~ted out'. could have been achieved in two ways; (i) by having entry 91 102 SUPREME COURT REPORTS [1972] 2 S.C.R. defining the scope of List I, or ( 2) by defining the scope of Lists II and III by adding in entry 91 the words : "anything not included in List II or List Ill." A B c D E F He added that when Art. 223 _(_ equivalen1 to the present Art. 248) provided that Parliament had exclusive power with respect to any matter not enumerated in List III or List II, it would theoretically be unnecessary to enhmerate [1] the categories in List I. ''The reason wlfy this is done is this. Many States' people, and particularly the Indian States at the beginning of the labours of ithe Constituent Assembly, were very particular to know what are the legislative powers of the Centre. They wanted to know categorically and particularly; they were not going to be satisfied by saying that the Centre will have only residuary powers. Just to allay the fears of the Provinoes and the fears of the Indian States, we had to particularise what is included in the symbolic phrase "residuary powers". That is the reason why we had to undergo this labour, notwithstanding the fact that we had article 223." A little later, he further explained that the Goverrunetnt of India Act, 1935, by s.104 in it had the same scheme and that section was similar to Art. 223. This speech indicates that the purpose of inserting entry 91 was to define the scope of residuary powers conferred on the Centre and that was that the Centre was to have exclusive pow.er not only on matters enumerated in the preceding entries but also on matters not enumerated in Lists II and III('). More instructive is the second report, dated July _5,_ 1947 of the Union Powers Committee, of which Pandit Nehru was the Chairman, wherein it was stated that while the residuary powers should be with the Centre, in view "of the ex· haustive nature of the 'three lists drawn up by us, the residuary subjects could only be related to matters which, while they may claim recognition in the future, are not at present identifiable and cannot therefore be included now in 1he lists". Sir Gopalaswami Ayyangar in his speech moving this report on August 20, 1947. ::\!so said that after making ."three exhaustive lists", if there was llny residue left at all, if in the future any subject cropped up .which could not be accommodated in one of these three lists, then tliilt subject should be deemed to remain with the Centre .... "('). G Therefore, what emerges from this discussion· is that the residuary - p6wer lodged in Art. 248 was in respect qf matiters which could hilt be foreseen or contemplated when the three Lists were framed, and therefore, could not then be included in any one of them. Mr. Setalvad, however, relied on a speech by Shri Krishnama ~Itari during the debate on the Centre's residuary power. On a (I) Constituent Assembly Debates, Vol. IX, pp. 855-857. (2) B. Shivrao, _71ze_ _Framing_ _of India's_ _ConstUution,_ Vol. IT, p. 867 and onwai'ds. A B c D E F G H lJNION _v._ H. s. DHILLON _(She/at,_ J.) 103' careful reading of it in the context of what others said on that occasion, it is clear that it was made to allay the apprehensions expressed by some of the members against Art. 248 and entry 97 of List I. The propositions, he sought to make, were (a) that one of the best points of the 1935 Constitution Act, according to Prpf. Wheare, was the enumeration of powers in the Seventh Schedu e; (b) that that having been done, a provision for residuary power became necessary, and ( c) that the Lists being almost "complete and exhaustive" there was not much left in the content of the residuary power. He, however, added that one possible use to which the provision for residuary power can be put in future would be to impose a capital levy on agricultural land, but that if that were done, he thought that the Centre would assign its proceeds to the States as all matters supposed to be associated with agriculture were allotted to the States. "I think", he observed, "the vesting of the residuary power is only a matter of acade mic significance to-day". It is undoubtedly true that he expressed his individual opinion as to the possible exercise in future of the residuary power under Art. 248 and entry 97 in List I for imposing a capital levy on agricultural land. But he did not refer to the other entries in the Lists such as entry 86 in List I or ell'try 49 in List II, and their impact or significance on the extent of the residuary power. Nor does the debate show that any other member took up or agreed with his suggestion. It is, therefore, not possible to spell out, as Mr. Setalvad tried to do, any consensus of opinion in the Assembly or an awareness on the nart of its members of the residuarv nnwer he;no C"nable of being usccl in future for a tax such as the one impugned here('). The question then is whether the impugned Act is in pursuance of 1the power under Art 248. If it falls under entry 86 of List I, it cannot fall under Art. 248 or entry 97 in List I. The argument was that since entry 86 of List I is in respect of a tax on capital value of assets excluding agricultural land, the impugned tax which includes agricultural land, is not a legislation falling under entry 86 but falls under Art. 248 (2) and/or entry 97 in List I. In answer to a specific question put to him, Mr. Setalvad stated that the power to impose a tax on capital value of assets, barr:.1g agricultural land, was one field of legislation and which fell under entry 86 in List I, while the power to impose a similar tax which included agricultural land was another distinct field of legislation and f~ll under entry 97 in List I, and Art. 248 (2). That being so. he said, the Weal~h Tax Act, as amended by the Finance Act, 1969, fell under the residuary power in Art. 248 and entry 97 ofList I. We frankly concede our inability to appreciare this contention. Can it be said that the Wealth Tax Act when passed in (!) Constituent Assembly Debates, Vol. 2, 838-839; 952-954 104 SUPREME COURT REPORTS (1972] 2 S.C.R. 1957 fell under entry 86 of List I, but that it ceased •to be so when it was amended in 1969 by including within i'ts sweep agricultural land ? The subject matter, the nature and the incidence of the tax remained the same, the only difference which the amendment made was the inclusion of agricultural land while computing the capital value of •the assets of an assessee. In our opinion, the Act, even after its amendment. retained its original character and continued to be one falling under Art. 246 ( 1) read with entry 86 in List I. The field of legislation under entry 86 in List I is no doubt a restricted one in the sense that the law imposing the tax envisaged there cannot include within its sweep agricultural land. But that does not mean that the power in respect of such a tax is not covered by that entry or that that which was withheld as a matter of policy and by the scheme of distribution of power is a distinct power, and therefore, falls under Art. 248 and/or entry 97 of List I. It is not uncommon for constitution-makers to confer a restricted legislative power on a particular subject or subjects. Counsel for the respondents pointed out to us as a sample of such restricted power entries 9 in Lis•t I and 3 in List III. The first is with resp~ct to the power to make law providing for preventive detention on three grounds, _viz.,_ defence, foreign affairs and security of India The second provides for the same power, but on three other grounds, _viz.,_ security of the State, maintenance of public order and of supplies and services essential to the community. The two entries read together clearly show that in the matter of preventive detention, the Constitution, as a marter of policy, provided a restricted field within which the power could be exercised, that is to say, for the six reasons set out in the two entries. As stated before, if counsel for the Union were right, the Union can claim power to make a law in respect of preventive detention on grounds other than those specified in the two entries on the footing that it has residuary power u 1 nder Art. 248 and/ or entry 97 in List I. Surely, such a field of legislation is not one which was not foreseen, or thought of, or was not "identifiable" in the words of Pandi1 Nehru and for which only Art. 248 and entry 97 in List I were enacied. 'Entry 86 in List I is yet another example where a restricted legislative power has been provided for, pr~­ sumably because under the distribution of powers in •the Constitution, the field of agriculture and agricultural land was almost wholly entrusted to <the States. Such a restriction must be held to be tire result of a calculated policy, for, in a country such as ours. agricultural land would b~ by far the largest asset and capable of ·bringing a verv substantial amount of tax. Those who excluded such an asset from entry 86 and gave power over it to the States -could not possibly have thought of including such an excluded B c D E F G H **A** **B** c D E F G H UNION _v._ H. s. DHILLON _(Mitter,_ /.) !05 item of taxation in the residuary power of the Union under Art. 248 ( 2). These reasons must compel us to reject the argument that a tax on the capital value of agricultural land falls under the residuary power or that it is a field of legislation distinct from that in entry 86 not dealt with therein, or that therefore, the amending Act does not fall under entry 86, List I. In this view, we are unable to accept the contentions urged on behalf of the Union. The amending Act, in our opinion, rell under entry 86 of List I, and not under Art. 248 and/or entry 97 of List I. It follows that the impugned Act, by reason of the restricted field in entry 86, Lis·t I, suffered from legislative competence. The majority judgment of the High Court must, consequently, be upheld and the appeal dismissed. We order accord· ingly but in view of the great importance of the issues involved in the appeal, we think it just that there should be no order as to costs. **Mitter,** J.-This is an appeal from a judgment of a Bench of five Judges of the High Court of Punjab and Haryana holding by a majority of four to one that s. 24 of the Finance Act of 1969 amending the definition of "net wealth" in the Wealth-tax Act (No. 27 of 1957) by the inclusion of agricultural land in the assets for the purpose of computation of net wealth was beyond the competence of Parliament and as such _ultra vires_ the Constitution. The reasoning of the majority Judges was that Entry 86 of List I of the Seventh Schedule to the Constitution withdrew the power to impose wealth-tax on agricultural land from the compe tency of Parliament. It was therefore not open to Parliament to enact such a measure in exercise of its power under Entry 97 of the said List. Although arguments were advanced before the High Court on behalf of the respondent that Entry 49 of List II empowered the State to impose a wealth tax on agricultural land. this contention was ultimately given up before the High Court. In the view of the majority Judges: "The. effect of the impugned legislation in its pith and substance is to impose a tax on the capital value of the assets, including agricultural land. Thus in effect the words of prohibition in Entry 86, namely, "excluding agricultural land", have been treated as non-existent. In doing so, Parliament has altogether gone beyond the limitations within which it has competence to legislate." According to the fifth learned Judge: "The State Legislature had no power to impose a ·tax on the capital value of the assets in the form of **8- L256Sup.CJ** **72** 106 SUPREME COURT REPORTS (l~i2j 2 S.C.R. agricultural land of an individi..al under Entry 49 and as there was no proh1b1Uon m the way of Pawam<nt makmg a Jaw unposmg such a tax the legis1at1on was beyond challenge." In view of the great importance of the question and the farreaching consequences of the amendment of 196'.:I, the app~al has been placed before a Bench of seven Judges and argu!llenl8 on both sides, and specially on behalf of the respondents, ranged far and wiue inc.uding the topic as to whe,her the .egis.at1ve competence of ParlJament and the States and the heads of legisla1iou in the first two Lists of the Seventh Schedule to the Constitution should be interpreted in the same way as the corresponding prov1s1ons m ss. 91 and 92 of the British North America Act of 1867. The propositions put forward by Mr. Setalvad for the appellant were as follows : ( 1) The real question to be determined in the appeal was whether the impugned tax fell within the ambit of Entry 49 in List II of the Seventh Schedule in which case no further question would arise and the respondent would be entitled to succeed. But in case the tax was not to be found within the ambit of Entry 49 Parliament would be competent to impose such a tax. (2) In order to determine the true nature of the imposition, we must consider the pith and substance or the essential character of the tax with special reference to the unit of taxation. (3) Entry 49 of List II envisaged taxation of lands and buildings as separate .units. The entry did not contemplate the aggregation of all lands, agricultural or otherwise, and buildin~ held by a person as one unit and consequently the State Legislature was not competent to impose a tax on such aggregation. Further the entry did not contemplate a tax which would permit the legislature to deduct the liabilities to which the owner of !he property might be subject. The unit for the purpose of taxation as described in the Weal'h-tax Act as net wealth is not contemplated by Entry 49 of List II. ( 4) The legislative power was distributed among the Union Parliament and the State Legislatures by the different provisions in Part XI of the Constitution. The objects of the exercise of power, that is to say, the subject matter of all legislation was comprised within the three Lists in the Seventh Schedule. The entries enumerated in List I set forth the matters within the exclusive powers of Parliament to legislate upon and this was notwithstanding anything in clauses (2) and (3) of Art. 246. The A B c F G A B c D E F G II UNION v. H. s. DHILLON _(Mitter,_ _J.)_ 107 exclusive power of the legislature of a State with respect to matters enumerated in List ll was however subject to els. ( 1) and (2) of Art. 246. ( 5) The legislative power conferred upon Parliament as above was supplemented by Art. 248. Under cl. ( l) of thm article Parliament had exclusive power to make any Jaw with respect to any matter not enumerated in the Concurrent List or State List, and by virtue of cl.(2) such power included the power of making any law imposing a tax not mentioned in either of those Lists. The net result was that if there was a matter or a tax which though not expressly -mentioned in any of the items in List I, was also not included in List II or List Ill, the same was to be a matter upon which 'Parliament alone was competent to legislate. ( 6) Proceeding on the basis of the decisions of this Court that tax on net wealth was covered by Entry 86 in List I it did not matter that the head of legislation under that entry read as "tax on the capital value of assets exclusive of agricultural lands" inasmuch as net wealth on agricultural land could not be ;he subject matter of any entry in List II; legislation on the topic of taxation of net wealth inclu;ive of agricultural land would fall within Entry 97 of List I read with Art. 248. ( 7) The baste principle of the Constitution was that there should not be any matter which would be beyond the scope of legislation either at the hands of the Union Parliament or at those of the State Legislatures, The Constitution did not envisage any power vacuum, ( 8) ·The words of Entry 86 of List I "exclusive of agricultural land" were not to be read as a prohibition on Parliament from taxing the capital value of such assets which were ascribable to agricultural land, The words were to be read as words of exclusion. In other words, without u'sing the words "exclusive of agricultural lands" Parliament might have specified in the entry all kinds of known assets, omitting any reference to agricultural lands. So interpreted, there would be no question of any prohibition on Parliament imposing a tax on the capital value of assets including agricultural land therein by the combined operation of Art. 248 and Entry 97 in List I. Entry 97 in List I was meant to comprise all matters which were not to be found in List II or List III including any tax not mentioned in those two Lists. Entry 97 was really a supplement to Art. 248(1). The scheme of the distribution of legislative power with regard to various matters adopted in the Indian Constitution had a - I 08 SUPREME COURT REPORTS [ l 972] 2 S.C.R close parallel to ss. 91 and 92 of the British North America Act and the decisions of the Judicial Committee of the Privy Council on those two sections throw considerable light on the question before us in this Court. The propositions put forward by Mr. Palkhivala were as follows : ( 1) Power to levy wealth tax on agricultural land was not covered by Art. 248 read with Entry 97 in the Union List. The Constitution has denied to the Union the power to levy any tax direct or indirect on the capital value of agricultural lands. (2) The judgments of this Court in S. C. _Nawn_ v. _Wealth-_ _tax Officer('). Asst. Commissioner_ v. _B. and_ C. _Ltd.(')_ and _Prithvi Mills_ v. _Broach Municipality(')_ show that (a) a direct tax on lands and buildings was covered by Entry 49 in List IT while a tax on the total assets which may include buildings and nonagricultural land was covered by Entry 86 in the Union List; (b) a tax under Entry 49 could be levied on the capital value of lands and buildings just as under Entry 86 a tax could be levied on the capital value of other assets; _(_ c) despite the State's power under Entry 49 to levy a tax which was directly on the capital value of lands and buildings, the Union Parliament has power under Entry 86 to impose a tax on the capital value of assets including buildings and non-agricultural lands; A B c D E _(d)_ The result is that so far as non-agricultural _i:_ lands are concerned they can be subject to two separate taxes, a land tax by the State and a Wealth-tax or capital levy by the Union. ( 3) Tne Constitution expressly excluded agricultural lands from this two-fold burden. The express words in Entry 86 restrict the scope of the Union's power to legislate in respect of G capital levy or wealth-tax. _(_ 4) The said scheme is apparent from other Entries in the said two Lists. _(5)_ Neither the Union nor the State has power to levy wealth-tax in respect of the total value of the entire wealth of II (I} [1969)-1 S.C.R. !OR. f)J [1970]-l S.C.R. JSR. 12J [1970]-l S.C.R. 263, A B c D E F G H UNION _v._ H. s. DHILLON _(Mitter,_ J.) 109 an ass~see which would include agricultural lands just as neither the Umon nor the State has power to levy income-tax in respect of total income inclusive of agricultural income or to levy estate duty or succession duty in respect of properties passing on death including agricultural land. ( 6) The scheme of the Constitution being exclusion of agricultural land from the purview of legislative power of the Union, it did not matter that there was no entry in List II which was in terms corresponding to those in Entry 86 to List I. (7) Wealth-tax in respect of agricultural land would not be covered by Entry 97 in the Union List. The opening words of the entry _i.e._ "any other matter" go to show that the matters which are specified in Entries 1 to 96 are alike excluded from Entry 97 as matters enumerated in List II or List III. ( 8) The scope of Art. 248 was not wider than that of Entry 97· in the Union List. If a matter was specifically enumerated in the Union List Art. 248 could have no application to such a matter and as Entry 86 envisaged the levy of wealth-tax on assets exclusive of agricultural land wealth tax on assets which included agricultural land could not come under Entry 97. ( 9) The extension of wealth-tax to agricultural lands would be an encroachment on the State's power under Entry 49 of List II. Taxes direct or indirect so far as agricultural lands are concerned are comprised in Entry 49 of List II. If Entry 49 is llO read it would be beyond the competence of Parliament to enact legislation which would have the effect of levying a tax on th& value of the assets which included agricultural lands. The Wealth-tax Act, 1957 as it stood before the amendment of 1969 contained the following provisions relevant for the purpose of this appeal. Under s. 2(a) "assets" includes property of every description, movable or immovable, but does not includo- ( i) agricultural land and growing crops, grass or standing trees on such land; (ii) any building owned or occupied by a cultivator or receiver of rent or revenue out of agricultural land; Provided that the building is on or in the immediate vicinity of the land and is a building which the cultivator or the receiver of rent or revenue by reason of his connection with the land re· quires as a dwelling-house or a store house or an out-house; (iii) I (iv) }- not relevant (v) J ll 0 SUPREME COURT REPORTS [1972] 2 S.C.R. S.2(m) ran as follows: "net wealth" means the amount by which the aggregate value computed in accordance with the provisions of this Act of all the assets, wherever located, belonging to the assessee on the valuation date, including asse.s required to be included in his net wealth as on thdt date under this Act, is in excess of the aggregate value of all the debts owned by the assessee on the valuation date other than ..... ( i) debts which under section 6 are nor to be taken iiito account; (ii) (iii) } not relevant. Section 3 was the charging section and provided that : "Subject to the other conditions contained in this Act, there shall be charged for every assessment year commencing on and from the first day of April, 1957, a tax (hereinafter referred to as wealth-tax) in respect of the net wealth on the corresponding valuation date of every indi•:idual, Hindu undivided family and company at the rate or rates specified in the Schedule." Under s. 4 net wealth was to include certain assets specified therein. Section 5 provided for exemption of certain assets held bv an a:ssessee. The notable exemptions were the interest of the ilssessee in the coparcenary property of any Hindu undivided family of which he was a member and any one house or part of a house belonging to the assessee exclusively used by him for residential purpose's provided that the value thereof did not exceed the amount specified. Under s. 6 debts and assets outside India were to be excluded. Under s. 7 the value of any asset was to be estimated to be the price which in the opinion of the Wealth-tax Officer it would fetch if sold in the open market on the valuation date. By the Finance Act 14 of 1969 s. 2 ( e) was amended and the relevant portion thereof reads : ""assets" include property of every description, movable or immovable, but does not include, ( I) in relation to the assessment year commencing on the I st day of April, 1969 or any earlier assessment year ( i) agricultural land and growing crops, grass or standing trees on such land; A :B c I> E F G H UNION _v._ H. s. DlflLLON _(Mitter,_ _J.)_ Ht B c £ F G H (ii) any building owned or occupied by a cultivator of, or receivef of rent or revenue out of, agricultural land : Provided that the building is on or in the immediate vicinity of the land and is a building which the cultivator or the receiver of rent or revenue by reason of his connection with the land requires as a. dwelling-house or a store-house or an outhouse; (iii) <1nimals (iv) certain right to annuities ( v) certain interests in property (2) in relation to the assessment year commencing on tlle ht day of April 1970 or any subsequent assessment year- ( i) animals; (ii) certJin rights to annuities (iii) certain interests in property." The exemptions provided in s. _5_ were considerably augmented by iliclusion of the following relevant clauses in sub-s. (I) of ~. 5. These are as follows : " (iv-a) agricultural land belonging to the assessee subject to a maximum of one hundred and fifty thousand rupees in value: Provided that where the assessee owns any house or part of a house or part of a house .,ituate in a p'acc with a population exceeding ten thousand and to which the provi>ions of clause (iv) apo'y and the value of such house or pa•t of a house together with the value of the agricultural land exceeds one hundred and fifty thousand rupees, then the amount that shall n')t be included h the net wealth of the assessee under this clause shal · be one hundred and fifty thousand rupees as reduced by so much of the value of such house or part of house as is not to be included in the net wealth of the assessee under clause (iv); - - e - (viii-a) growing crops (including fruits on trees) on agricultural land and grass on such lands; (ix) the tools, il'.lplements and equipment used by the assessee for the cultivation, conservation, improvement or maintenance of agricultural land, or for the raising or harvesting of any agricultural or horticultural produce on such land. 112 SUPREME COURT REPORTS [1972] 2 S.C.R. _Explanation.-For_ the purpose of this clause, tools, implements and equipment do not include any plant or machinery used in any tea or other plantation in connection with the processing of any agricultural produce or in the manufacture of any article from such produce; (x) to (xxi) In effect the rigour of the inclusion of agricultural land, growing crops, grass etc. was mitigated by exempting land of the above character to a maximum of Rs. 1,50,000 in value, besides growing crops including fruit trees on such land, tools, implements and equipment used by the assessee for the cultivation etc. of agricultural land. The scheme of the Wealth-tax Act both before and after the amendment of 1969 thus appears to be to impose an annual tax on the value of all the assets of an assessee which are in excess of the aggregate value of all his debts on the valuation date other than debts which are expressly excluded. This is to be subject to inclusion of certain assets mentioned in s. 4, exemption of other assets in s. _5_ and exclusion of assets and debll outside India in tenns of s. 6. Thus before 1969, if an assessee had ow<!d a debt secured on a non-agricultural property or a debt which he had incurred in relation to such property, the same would be deductible from the value of the assets owned by him. If such a debt was in respect of agricultural property the same would not have been excludible. As a result of the Amendment of 1969 any debt secured on any property, be it agricultural land or otherwise and any debt incurred in relation to any property, unless the property was one in respect of which wealth-tax was not chargeable, would have to be deducted from the total value of the assets for comput~tion of the net wealth of the assessee. The taxation was to be based on the net worth of an individual, that is to say, his total assets less his debts. It is therefore possible for an assessee who though seemingly in possession of assets of great value not to be subject to proportionately high taxation if he owes large debts to others within th·e meaning of the definition clause of s. 2(m) on the valuation date. The overall change by the Amendment Act of 1969 lay in that in respect of assets in relation to the assessment year commencing from I st April 1970 and any subsequent year agricultural lands, growing crops or a building occupied by a cultivator or receiver of rent or revenue out of agricultural land ceased to be exemptible. The main question in this appeal is, . whether the amendment of the definition of 'assets' by withdrawing the exemption in respect of agricultural land etc. was within the competence of Parlian1ent. The vires of the Wealth Tax of 1957 was challenged before different High Courts prior _lo_ the decision appealed from and the matter ~!so came up to this Court as is to be found in at least A B c D E ' G II A B c D E F G H UNION _v._ H. s. DHILLON _(Mitter,_ /.) !13 three decisions which have come to my notice. But as no question ever arose with regard to the competency of Parliament to include agricultural assets in the definition of "net wealth" for the purpose of levying wealth-tax, the point now before us never arose in any of those prior decisions. In none of the decisions which will be presently noted was there any pin-pointed direction at the particular head of legislation which would cover the im!lOsition of wealth-tax on the aggregation of assets. It will therefore not be out of place to consider the competence of Parliament to legislate on this field not on any pre-conceived notions nor on the basis of any decisions already rendered. The Constitution of India forged by the Constituent Assembly after deliberation for a very long time was meant to be as complete a Code as possible by which all prior laws and all law-making powers were to be tested and guided. As India was to be a sovereign democratic Republic composed of a Union of States, it was necessary for the Constitution-makers to define with as much precision as possible the respective functions of the Union and the States' Legislatures as also the relations between the Union and the States. As both the Union and the States were to have legislative powers, it became necessary to distribute legislative powers among them and to provide for as clear a demarcation of these powers as was feasible. This was sought to be done in Chapter I of Part XI _of_ the Constitution containing Arts. 245 to 255. The territorial extent of the laws to be made by Par iament and the State Legislatures is dealt with in Art. 245 which provides that subject to the provisions of the Constitution Parliament has the power to make laws for the whole or any part of the territory of India while the legi,lature of a State can make laws for the whole or any part of the State concerned and a law made by Parliament is not to be treated as invalid on the ground that it would have extra-territorial operation. Art. 246 of the Constitution seeks to divide the subject matters of legislation in three Lists enumerated in the Seventh Schedule to the Constitution and indicating the legislative body competent to deal with any such subject matter. Cl. (I) of Art. 246 gives ParHament the exclusive power to make laws with respect to any of the matters enumerated in List I in the Seventh Schedule and this is notwithstanding anything in els. (2) and (3). By cl. (2) Parliament as also the Legislature of any State are both given power to make laws with respect to the matters enumerated in List III in the Seventh Schedule, nowithstanding anything in cl. ( 3). By cl. ( 3) the Legislature of a State is given exclusive power to make laws for such part or any part thereof with respect to matters enumerated in List II but this is to be subject to els. (1) and ( 2). Broadly speaking, the scheme under this article is that Parliament is to have exclusive power to make laws with respect 114 SUPREME COURT REPORTS [1972 J 2 S.C.R. to ·matters in List I, the State is to have such exclusive power with regard to matters in List II subject to the powers of Parliament in respect of matters in List I and List III while matters in List III could be the subject matter of legislation bo h by Parliament and the State Legislatures. By cl. ( 4) however Parliament is given power to make laws with respect to any matter for any part of a territory of India not included in a State, notwithstaPding that such matter is a matter enumerated in the State List. Obviously the Canstitution gave Parliament the power to make laws with respect to Union territories mentioned in sub-cl. (b) B ()f cl. ( 3) of article 1 of the Consti'ution and o~her territories mentioned. in sub,cl. ( c) of the said clause as might be acquired ~fter the commencement of the Constitu'ion. The Constitution- _c_ makers envisaged a possibility of the existence or occurrence of .SU_bject matters of legislation not enumerated either in List Il (the State List) or List III, the Concurrent List. This was sought to be provided for in Art. 248 of the Constitution which reads : " ( 1 ) Parliament has exclusive power to make any law with respect to any matter not enumerated in D the Concurrent List or State List. (2) Such power shall include the power of making any law imposing a tax not mentioned in either of those Lists." E The above three articles thereafter make it clear that the Constitution-makers were careful to see that the law making power wi'th respect to 11ny ma'ter which until the date of the Cons•i•ution had not been thought of as fit for legislation or had by some chance been omitted from the fold of Li~ts TT and ITT were to be Within the exclusive jurisdic•ion of Parliament to legislate. Such ll!w-m~king power was to extend to the imposition of tax not F tnentioned in either of those Lists. The Constitution-makers were also alive to the possibility of laws made by a State Leg,slature impmging upon laws made by Parliament in its competence and sought to remove the diffiWlty by providing in Art. 254 that laws made by Parliament, G whether passed before or after the laws made by a State legislatttre, were to prevail in such a contingency. This is howev~r to ·be subject to dame (2). Art. 250 was aimed at giving Parlia ment the power to make laws for the whole or any. part of the territory of India with respect to any of the matters enumerated in the State List while a proclamation of emergency was in opera- H tkln. ln normal circumstances the extent of legisla'ive nower of ·P«r!iament and the State Legislatures have to be worked out in te:tins ·of Arts. 246 and 248 of the Constitution. UNION _v._ H. s. DHILLON _(Mitter,_ _J.)_ ll5 # I ### "Entry 20. Economic and social planning Entry 21. Commercial and industrial monopolies, combines and trusts, and Entry 23. Social security and social insurance; em p~oyment a1nd unemployment" in present List III had no counter-part i]1 any of the Lists in the G Seventh Schedule to the Government of India Act. But what is necessary for our present purpose is to note that there was nothing like present Entry 97 in List I in the Government of India Act. Section 104 of the said Act which is analogous to Art. 248' of our Constitution read: " (I ) The Governor-General may by public notificaH tion empower either the Federal Le~Mature or a Provincial Legislature to enact a law with respect to any matter not enumerated in any of the Lists in the Beventh Schedule to this Act, including a law imposing a tax not c D The Seventh Scbedule which is divided in three Lists.. sets forth 209 heads or subject matters o,f legislation : 86 enLies in List I, 66 entries in List II and 4 7 in List Ill besides Entry 97 in List I reading "Any other matter not enumerated in List II or List Ill including any tax not mentioned in ei her of those Lists". Few Constitutions have attempted such precise enumeration of subject matters of legistation. Schedule VII of the Government of India Act, 1935 containing the Legislative Lis~s had no more than 59 entries in List I known as the Federal Legislative List, 54 in List II known as the Provincial Legislative List and .3 6 in List III known as the Concurrent Legislative List. Even a cursory comparison between List I of the Constitution and List I of the Government of India Act will show some additions of subject matters which either did not exist or could not be thought of at the time when the Government of India Act was enacted. For instance Entry 6 in present List I reads : "Atomic energy and mineral re10urces necessary for its production" and Entry 12 "United Nations Organisation": atomic energy in 1935 was only in the minds of th~ scientists. United Nations Organisation had not come into .existence. Although the League of Nations was there, probably it was not thought necessary to include any such entry in List I under the Government of India Act because it would be the Imperial Parliament which would be primarily concerned with this subject. Entry 14 in the present list reading "Entering into treat;es and agreements with foreign countries and implementing of treaties, agreements and conventions with foreign countries" and Entry 15 "War and peace" could not form the subject mat ter~ of legislation when Federal Legislature was not a sovereign body for such purposes. It is significant to note that entries like 116 SUPREME COURT REPORTS (1972 j 2 S.C.R. mentioned in any such List, and the executive authority of the Federation or of the Province, as the case may be, shall extend to the administration of any Jaw so made, unless the Governor-General otherwise directs. (2) In the discharge of his functions under the section the Governor-General shall act in his discre**tion."** It will be noted that the Imperial Parliament was alive to the fact that there might be subject matters of legislation not covered by any of the three Lists of the Seventh Schedule but the same were not committed to the care of the Federal Legislature or even attempted to be divided between the Feder.al Legislature and the State Legislatures. It was the function of the GovernorGeneral to empower either the Federal Legislature or a Provindal Legislature by public notification to enact a Jaw with respect to any law not enumerated in the Seventh Schedule including a tax not mentioned in any such list and in the discharge of this function, the Governor-General was to act in his discretion. The Explanation for this is to be found in the speech of Sir Samuel Hoare recorded in the Parliamentary debates to the effect that "Indian opinion was very definitely divided between the Hindus who wanted to keep the predominant powers in the Centre and the Moslems who wished to keep the predomim!nt power in the provinces. The extent of that feeling made each of these communities look with greatest suspicion at the residuary field the Hindus demanding it with the Centre and the Moslems demanding with the Provinces." It would appear from the same speech that all attempts to bridge the difference only resulted in making the Federal List, the Pro vincial List and the Concurrent List each as exhaustive as possible to leave little or nothing for the residuary field. The sa.id 1>peaker hoped that "all that was likely to go into the residuary field were perhaps some quite unknown spheres of activity" which could not be contemplated at the moment. The matter had engaged the attention of the Constituent Assembly. The Second Report of the Union Powers Committee dated 5th July, 1947 to the President of the Constituent Assembly contains the following statement : A B c D E F G "We think that residuary powers should remain li with the Centre. In view however, of the exhaustive nature of the three Lists drawn up by us the residuary subjects could only relate to matters which, while they A UNION _v._ H. s. DHILLON _(Mitter,_ /.) 117 may claim recognition in the future, are not at present identifiable and cannot therefore be included now in the Lists." Moving the aforesaid report Shri Gopalaswami Aiyangar in his speech on the 20th August, 194 7 said _inter_ _a/ia_ as follows: I B "We should make the Centre in this country as strong as possible consistent with leaving a fairly wide range of subjects to the Provinces in which they would have the utmost freedom to order things as they liked. In accordance with this view, a decision was taken that we should make three exhaustive Lists, one of the c Federal subjects, another of the Provincial subjects and the third of. the concurrent subjects and that, if there was any residue left at all, if in the future any subject cropped up which could not be accommodated in one of these three Lists then that subject should be deemed to remain with the Centre so far as the Provinces are D concerned." (see the Constituent Assembly Debates Vol. V. p. 38). c It will be noted that Gopalaswami Aiyangar's speech is almost on the same lines as that made by Sir Samuel Hoare in explaining the principle adopted in framing the kgislative lists and in particular the decision to leave the residuary field to the care of E the Governor-Genera\ under the said section without making the matter the subject of an entry in List I of the Seventh Schedule. A glance at these Lists shows that in some cases broad classes of subject matters of legislation were divided under more than one head and placed in different lists. Thus while generally "industries" are to be within the legislative power of List II under F Entry 24 of that List, a portion of industries is carved out of that Entry and placed within the exclusive competence of Parliament under List J. These portions are mentioned in Entry 7 of the Union List _i.e._ "Industries declared by Parliament by Jaw to be necessary for the purpose of defence or for the prosecution of war" and in Entry 62 "industries the control of which by the G Union is declared by Parliament by law to be expedient in the public interest". To take another instance "preventive detention occurs both in List I and List III. Entry 9 of List I reads "Pre E vent~ve detention f~r reasons connected with Defence, Foreign ~ff~~rs. <?r t~e security of India; persons subjected to such detention whI!e Preven,tive detention for reasons connected with the H security of a Stat.e. the maint.enance of public order, or the main tenance ?f supplies and services essential to the community· per s~n~ su?iected to such detention" finds a place in the Conc~rrent L1st as Item 3. So far as preventive detention in its aspects men 118 SUPREME COURT REPORTS [1972] 2 S.C.It. tioned in Entry 9 of List I is concerned Parliament bas tho **ex-** ;. elusive power. The competence of the State Legislature to legi.!Jate wit.h regard to preven~ive detention can only be under Entry 3 of Liq Ill but even then it cannot encroach on the field **set** apart for exclusive legislation by Parliament though the two fie!~ of legis'ation may, in certain circumstances, have a common border difficult of definition. B So far as "Lands", whether agricultural or otherwise, agriculture, agricultural income and taxes with regard to any of **then** matters the specification appears to be as follows: _Lisl_ _**l**_ Entry 82. Taxes on income other than agrjs;utural income. Entry 86. Taxes on the capital value of the assets, exclusi\'G of agricultural land, of individuals and companies; taxes on the capital of companies. c Entry 87. Estate duty in respect of property other than **D** a?ricultural land. Entry 88. Duties m rc'ipcct of succession to property other than agricultural land. _List_ _Jl_ Entry J 8. Land, that is to say, rights in or over land, land tenures including the relation of landlord and tenant, and **the** collection of rents; transfer and alienation of agricultural land; land improvement and agricultural loans; colonization. 1 nt')' 46. Taxes on agricultural income. Entry 4 7. Duties in respect of succession to agricultural land. Entry 48. Estate duty in respect of agricultural land. Entry 49. Taxes on lands and buildings. _List_ _lll_ Entry 6. Transfer of property other than agricultural land; registration of deeds and documents. Entry 7. Contracts, including partnership, agency, _contra.cts of carriage, and other special fonns of contracts, but not mcludmg· contracts relating to agricultural land. Entry 41. Custody, management and disposal or property (including agricultural land) declared by Jaw to be evacuoe property. **E** **F** **G** UNION _V._ H. s. DHILLON _(Mitter,_ _!.)_ 119 Entry 42. Acquisition and requisitioning of property. Scanning the lists and specially the entries mentioned above, there can be little doubt that the Constitution-makers took care to insert subject matters of legislation regarding land and particularly agricultural land and matters incidental to the holding of agricultural land .in the exclusive jurisdiction of State Legislatures. Although Parliament is competent to legislate on transfer~ ot property and contracts generally, the legislative power in thtj regard is not to be exercised over agricultural land but when evacuee property includes agricultural land, Parliament is competent to legislate with respect to custody, management and disposal of the same under Entry 41 of List III. Similarly, when a question of acquisition or requisitioning of property including agricultural land is concerned, both Parliament and the State Legislatures are competent to exercise legislative powers. ###### I A B c It may also be noted that so far as some specific matters of legislation with regard to agricultural land are concerned, they have been set forth in List II while there are corresponding entries D in List I which expressly exclude agricultural land. Thus Entry 46 in List II reads "taxes on agricultural income". Ent·y 82 in List I mentions "taxes on income other than agricu'tural income". Again Entry 4 7 in List II "Du' ies in respect of succession to agricultural land" has its counter-part in Entry 88 of List I "Dut'es in respect of succession to property other than agricultural land''. E Entry 48 in List II 'Estate duty in respect of agricu'tural land' has its counter-part in Entry 87 of List I 'Estate duty in respect of property other than ag·icultura] land'. But whi'e Entry 86 in List I reads "Taxes on the capital value of the assets, exclmive of agricultural land, of individuals and companies; taxes on the capital of con:ipanies" there is. no corresponding entry with regard F to tax on capital value of agncultural lands, the nearest aporoach to it being Entry 49 in List II "Taxes on lands and buildin~s." In order to find out the true nature of the Wealth-Tax Act one must lo_ok ~t the charging section to ascertain the exact scope cf the leg1slat10n. In the words of the Judicial Committee of the G Privy Council in _Provincial Trea<urer_ _of_ _A lber_ _[1]_ _a_ _&_ _A nr._ v. _C._ _E._ _Ken:_ _&_ _another(')_ "the iden.tification of the subject matte· of the tax 1~ na.turaliy to ~ found m the charging section of the statute, and 1t w1H only ~e m the case of some ambiguity in the •errns of the chargmg section tha.t recourse to. other sections is necessary." The scheme .of the Act 1~ substance 1s _tn_ treat the indiviclual as if ~e was a busmess, ·ascertam the price which the said business would 11 fetch by deducting its liab.ilities from its tangible assets an'1 im!Jose a tax on the balance which is the net wealth of an individual. _(I)_ p933] A. C. 710. 120 SUPREME COURT REPORTS (1972] 2 S.C.R. Whereas under the Wealth-Tax Act as - ;ginally enacted a portion of the assets, namely, agricultural land was not to be taken into consideration, the amendment of 1969 brouqht that in for the computation of the value of the business. The nature of the Act has not changed; only it has been made more comprehensive than before. We have next to find out the legislative entry to which the said Act conforms. If one were to ignore Entry 97 in Lis_t I, the only entry which might suggest itself would be Entry 86 and there would be no entry either in List II or List III carrying such a suggestion unless one was to take the view that Entry 49 in List II would comprehend that portion of the wealth of an individual which had its base in lands and buildings. A B c We may therefore examine the true scope of the two entries, _viz.,_ Entry 49 in List II and Entry 86 in List I. _If_ the Act does not fall in any of these two entries, it must be covered by Entry 97 in List I and be within the legislative competence of Parliament under Art. 248 of the Constitution. Under the express words of D clause ( 1) of Art. 248 one has only to consider whether the subject matter of legislation is comprised in List II or List III : if it is not, Parliament is competent to legislate on it irrespective of the inclusion of a kindred subject in List I or the specified limits of such subject in this List. Before the passing of the Wealth-tax Act of 1957 little attention was paid to Entry 55 in List I of the Seventh Schedule to the Government of India Act, 1935 or its successor, the present Ent(y 86. No Act of the Federal Legislature was ever traced directly \o Entry 55. Attempts had however been made to impugn taxes imposed by the Provincal Legislature or the State Legislature as covering the subject matter of Entry 55 or Entry 86. These cases will be noted in due course. The expression "capital value" has not been defined in any Act either English or Indian, but is a term well known to the English Law of Rating. According to Ryde on Rating, Eleventh Edition, page 433 : "Where property is of a kind that is rarely let from year to year, recourse is sometimes had to interest on capital value, or on the actual cost, of land and buildings, as a guide to the ascertainment of annual value." Further, according to the learned author : "Where better evidence is in the circumstances of a particular hereditament impossible, resort may be had to either capital value or cost of construction, either of E F G H 121 A 8 c UNION _v._ H. s. DHILLON _(Mitter,_ J.) which can, with appropriate corrections, be converted into approximately equivalent terms of annual value. (See p. 436 quoting the rule expressed by Scott, L.J. in _Robinson Brothers (Brewers) Ltd._ v. _Houghton and_ _Chester-le-Street Assessment Committee-[1937]_ 2 K.B. 445, at 481) ." According to Farady on Rating (5th Edition) p. 42 : ""Effective capital value" is a term commonly used by valuers, but, so far, no definition of such term appears in any text-book, and in order to determine 'effective capital value' of any building the valuer must appreciate the proper significance of the term." The learned author then goes on to discuss the positive meaning of the expression by first explaining its negative meaning and at page 43, after noting some instances, states : "The above instances are sufficient to illustrate the D difficulty of defining 'effective capital value'. It is submitted that the substantive definition of this expression is 'the selling price between a willing seller and a willing · purchaser of the property in qu<;stion, subject to the restriction that it can only be occupied substantially in its present condition'; this takes into consideration all I\ the above qualifications, but it will be observed that it is then no easier to assess the figure than to arrive at the rental value direct." According to Halsbury's Laws of. England, third edition, volume 32 at page 79 : F "Where neither the actual rents nor the profits of trade afford evidence of annual rental value, a percentage on the cost of construction or structural value of the hereditameot, or of a substitute hereditameot, is sometimes taken as evidence. The value taken is sometimes called the 'effective' capital value, that is to say, the G capital value leaving out of account expenditure on unnecessary ornamentation, or accommodation surplus to requirements and after allowing, if necessary, for age and obsolescence." It is stated further : H "This method of valuation has been applied, for instance, to the directly productive parts of ~u~lic utility undertakings (such as water works), to mumc1pal 9-L256Sup.Cl/72 122 SUPREME COURT REPORTS (1972) 2 S.C.R. property (such as schools, sewerage systems, a town hall, a fire station, a swimming pool, to colleges and university buildings, public schools, a light house, an old people's home etc." A Except in the Law of Rating, the expression "capital value" does B not seem to have been used in any branch of English Law. There is no reference to it in Stroud's Judicial Dictionary or Jowitt's Law Dictionary. Yet the expression was used in the Government of India Ac'!, 1935-a statute passed by the Parliament of England and drawn up by people expected to be familiar with words and expressions known to lawyers in England. It will therefore not be improper to interpret the expression "capital value of assets" C ~ meaning the aggregate value of the assets which a willing purchaser would offer a willing seller for the property in its condition at the time of the transaction. Naturally, a purchaser would enquire into encumbrances on the property and charges thereon created by the seller but he would not be concerned with any other debts or liabilities incurred by the seller for the purpose _oi_ acquir- D ing the property or maintaining it. So interpreted the expression "capital value of assets of an individual" will take _in only the assets less the charges secured but not any other liability. Entry 49 in List II of the Constitution had a fore-runner in Entry 42 in List II to the Seventh Schedule to the Government of E India Act, 1935 which read "taxes o,n lands and buildings, hearths and windows". The inclusion of hearths and windows lnade little difference to the entry and it was therefore dropped from the list in the Constitution. In _Sir Byramjee_ _Jeejeebho,v_ v. _Province_ _of_ _Bombay(')_ the scope of entry 42 in List II came to be examined in juxtaposition to that of entry 55 in List I which is identical with F Entry 86 of List I of the Constitution. In that case. the jurisdiction of the State Legislature to levy a tax called the Urban Immovable Property Tax Act was challenged. There by Part 6, Bombay Finance Act of 1932 incorporated therein by the Bombay Finance (Amendment) Act. 1939 was impugned. S. 20 of the said Part 6 of the Bombay Finance Act directed that inclusion of the said Part was to extend to the Citv of Bombay and the other places therein mentioned. S. 21 defined "an,nual letting value" in the City of Bombay as meaning the rateable value of buildings or lands as determined in accordance with the provisions of the City of Bon:ibay M~nicipal Act, I 888. S. 22 which was the charging sectJOn provided that there shall be levied and paid to the Provincial Government a tax on buildings and lands called the Urban Immovable Property Tax at I 0 per cent of the annual letting value F H (I) A. T. R. 1940 Bombay _65._ c _D_ :E F UNION _V._ H. s. DHILLON _(Mitter,_ /.) of such buildings or lands. Examining the legislative authority of the Provincial Government, Beaumont C.J. observed : "The impugned tax may fall either : (I) within item 42 of the Provincial List and not within the Federal List, or (2) within item 54 or item 55 of the Federal List and not within the Provincial List, or (3) it may fall within both the Lists." It will be noied that item 54 read "taxes on income other than agricultural income" and item 55 "'taxes on the capital value of the assets, exclusive of agricultural land, of individuals and companie.<: laxes on the capital of the companies". According to the learned Chief Justice the impugned tax was not a tax on income. H~ observed: "The charging s. 22 imposes the tax on lands and buildings, and not on income, and the basis of the tax is annual value. This is an arbitrary basis which might be applied as well for ascertaining capital value, as for ascertaining income. The fact that some concession is allowed to the small owner, a concession which may be based as much on political, as on economic considerations and that an allowance may be made where the property is shown to produce no income, a fact which may be taken to show that the estimated yalue was found to be erroneous, cannot alter the nature of the tax." Addressing himself to the question as to whether the tax was one on the capital value of the assets, the learned Chief Justice said : "An analysis of the language employed in items 54 and 55 respectively affords scope for this argument but whether the contention be sound or not, in my opinion. it is impossible to say that this tax, although it is a tax on lands and buildings, is a tax on the capital value of the I.ands and buldings. It is imposed without any relal1on to the capital value except so far as such value can be ascertained by reference to rateable value." G Broomfield. J. made an attempt to ascertain what the expression "capital value" meant and said : . "What is meant by the capital value of assets in that Item (1~em 5.5) is by no means clear, and the argument ~brew h!tl.e light on the matter. It may be that what is H mtend<:d ts a tax on the total value of assets in the nature of capllal levy. In any case the measure of the capital v~lue of assets .would appear to be,the market price T.1at would obviously be affected by several factors, _e.g:_ SUPREME COURT REPORTS [ 1972] 2 **S.C.R.** mortgages and charges, of which the impugned tax **takes** no account .... Looking at the essential character of the tax from the legal point of view, I think it may be described as a tax on lands and buildings, imposed on the owners _qua_ owners, and assessed by a somewhat arbitrary but not inequitable standard, which is not dependent either on the income of the assessee or on the capital value of the propenies." Kania, J. did not thi,nk that the impugned tax was of a nature to encroach upon item _55_ in List I; under that item the tax should be on the total capital assets and not on a portion of person's capital. In _Munici{'al Corporation_ v. _Gordhandas(_ [1] ) Rule 350-A framed by the Corporation of the City of Ahmedabad in respect of a rate on open lands was impugned as _ultra vires._ This rule laid down the manner in which the rateable area of the open lands was to be determined and provided that the rate of the area of open land thus determined was to be levied at one per cent of the valuation based on capital and all such lands subject to 'exemptions !hereinafter provided shall be liable to be charged the same'. Rule 243 dealt with the valuation based on capital and it laid dowil that valuation based upon capital shall be the capital value of buildings and lands as may be de'lermined from time to time by the valuers of the municipality who were to take into consideration such reliable data as the owners or the occupiers miglit fur,nish either of th~ir own accord or on being called upon to do so. It was common ground that the corporation derived its authority to impose taxes or rates under s. 73 of Bombay Act XVIII of 1925. Sub-s. ( 1) of that section empowered a Municipality· to impose for the purposes of the Act a rate on buildi,ngs or lands or both situate within the municipal borough. Sub-s. (2) provided for a limitation : that nothing in this section was to authorise the imposition _ol_ any tax which the State Legislature has no power to impose in the State under the Government of India Act, 1935 under Entry _55,_ List I. The corporation contended that the rate in question did not amount to a capital levy at all, but that it was a rate on open land and the value of the capital was utilised merely as a means or machinery to enable the municipal corporation to levy a reasonable rate on the said open plot. In support of this. the corporation relied upon the E:tplanation· to s. 75 of the Municiul Boroughs Act laying down the procedure preliminary to imposing a tax. It provided that before imposin.e: a tax a municipality shall, by a resolution passed at a general meeting, specify among other things (iii) i,n the case of a rate on buildings or lands (I) A.1.R. 1954 B~mbay 188. **B** c **D** **l** F G **H** A c D G ff UNION _v._ H. s. DHILLON _(Mitter,_ /.) 125 or both, the basis for each class of the valuation on which such rate is to be imposed; and the explanation added that in the case of lands the basis of valuation may be either capital or annual letting value. According to the municipal corporation all that R. 350-A had purported to do was to adopt the capital value as the basis of valuation for levying the rate on open lands. In upholding the validity of the tax, Gajendragadkar, J. (as he then was) said (seep. 191) : " ...... the Provincial Legislature is given the power to levy a tax on lands. Entrv 42 of List II, which confers this power on the Provincial Legislature, intro.. duces no terms of 11mita'tion and does not provide for any particular manner in which the tax should be levied. In other words, the power of the Provincial Legislature to levy the tax on lands is unqualified and absolute. In the present case, the power of the Municipal Corporation to levy a tax on the open land is similar in extent to the power of the local legislature ... _U,_ by adopting this basis, _i_ the inevitable result would be that the rate which is ultima'tely levied amounts to a capital levy and is, therefore _ultra vires,_ it would be necessary to hold that, not only R. 350A _ultra vires,_ but the 'Explanation' to s. 75 itself is _ultra vires."_ He did not however feel driven to this conclusiOQ as i,n his vie.. : "a distinctio11 must be made between a rate or tax which is levied on land on the basis of it~ capital value and a tax which is levied on the capital value of the land treating it as an asset itself." He added: "It seems to me that it is perfectly legitimate to tho taxing authority to attempt to correlate its tax to the real value of the property. It would be open to a municipality to levy a uniform tax on all the buildings· it ':"ould similarly be open' to the municipality to levy ~ uniform tax on all the lands. The Municipality may, '1owever attempt to ·make. such taxation reasonable by taking into account the areas of the lands and the size and nature of the buildings. But when the municipa!ity makes provisions for taking into account these relevant facts, the municipality is attempting only to make its taxation reasonable, just and equitable. It is with that view alone that, in the case of lands, the Municipal Corporation of Ahmedabad has chosen to adopt the basis .of the capital value of the open lands to determine the rate of tax that should be levied on them." 126 SUPREME COURT REPORTS [ 1972] 2 S.C.R. The learned Judge went on to consider in what manner Central Legislature could levy a tax on the capital value of the assets. He - hserve<l : "If the asset in question happens to be a land, its real capital value in the context would be determined after taking into account the encumbrances to which the land may be subject and the other liabilities which may be enforceable against it. .... ;The position of the Municipal Corporation when it levies a rale on the same property, treating it as land, is not the same or similar. It would be open to the Municipal Corporation to take into account the value of the land as such. without reierencc to the encumbrances to which it is subject, and to levy the rate on the value o.f the land so determined. Jn other words. the municipal rate or tax would not be concerned to determine the real economic capital value of the asset in question, but to find out the market value of the land apart from its real capital value in the eco nomic sense and levy its tax on i't. In this way, the capital value of the open land determined by the Municipal Corporation under R. 350A would not always or necessarily be the same as the capital value of the same land if i't was determined by the Central Legislature for the purpose of levying a tax under Item 55 in List I." The l~arned Judge however visualised that in some cases the capital value may work out to be the same in cases falling under Entry 55 of List I and those falling under Entry 42 of List II. The le~rned Judge Vyas, J. said : "In the context of item 55 the capital value of the assets means the real capital value, regard being had to the encumbrances to which the lands may be subject. If a land whose market value is Rs. 10,000/- is subject to a mortgage of Rs. I 5,000/- the owner has only an equity of redemption the val\le whereof may be a minus quantity. Such an asset cou [1] d not possibly be liable to the levy of a tax under entry 55 of Li>t I. All the same the owner would not be immune ffom the levy of a tax upon the said land by the municipality under entry 42 for the municipality is not concerned whether the land is encumbered or unencumbered." It must be noted that the above decision was set aside in appeal to this Court but there is nothing in the judgment of this Court which goes against the interpretation of the expression "capital value" by the High Court. The decision of the majority Judges of this Court was based on the fact that the word "rate" had not n c L> E F G H UNION _v._ H. s. DHILLON _(Mitter,_ _J.)_ 127 A A been used anywhere in the Act and when it was provided that in the case of open lands the basis of valuation may either be capital or annual letting value "the words must be held to refer to that well-known method of valuation prevailing in England with respect to levy of rates and cannot be read to mean a percentage of the capital value itself" : _Patel Gordhandas Hargobindas_ v. B _Municipal Commissioner, Ahmedabad(1) ._ _Municipal Commissioner, Ahmedabad(1) ._ . Entry 49 appears always to have been regarded as contemplating the levy of tax on lands and buildings b~th ·as units. As was pointed out in _Asst. Commissioner_ v. _B_ _&_ _C. Mills Ltd._ (supra) : "Entry 49 of List II, contemplates a levy of tax on c lands and buildings or both as units. It is not con cerned with the division of interest or ownership in the units of lands or buildings which are brought to tax. Tax on lands and buldings, is directly imposed on lands and buildings, and bears a definite relation to it. _:_ .... For the purpose of levying tax under Entry 49, List II the State Legislature may adopt for determining the D incidence of tax the annual or the capital value of the lands and buildings." In this case it was held that the Madras Urban Land Tax Act 12 of 1966 was in pith and substance one which imposed a tax on urban land at a percentage of the market value and was within the ambit of Entry 49 of List IL The history of this entry was also E traced in the judgment and it was held that "Entry 49 'taxes on lands and buildings' should be construed as taxes on lands and taxes on buildings." It may not be out of place to note that the vires of the Punjab Urban Immovable Property Act of 1940 which contained somewhat similar provisions was challenged before the Federal Court F of India in _P..alla_ _Ram_ v. _Province_ _of East Punjab_ ( [2] ). There the charging section (sec. 3) provided for the levy and payment of annual tax on buildings and lands situate in the rating area shown in the Schedule to the Act at a rate prescribed not exceeding twenty per centum of the annual value of such buildings and lands and section 5 laid down that the annual value of any land or building G was to be ascertained by estimating the gross annual rent at which c D &uch land or building might reasonably be expected to let from year to year less certain allowances. One of the grounds urged was that the impugned tax was 1n substance a tax on income and as such covered by Entry 54 in List I and not by Entry 42 in List II. Turning down the above contention it was observed : H "The Act is to be read as a whole and having regard "The Act is to be read as a whole and having regard to the elaborate provisions made in it for determining {l) [1964]-2 S.C.R. 608 at 632. (2) [19481 F.C.R. _'1m._ 128 SUPREME COURT REPORTS [1972] 2 S.C.R. the annual value of buildings and to the fact that the rate actually fixed in the Official Gazette . has a direct reference to the annual value, there can be no doubt that the basis of the tax is annual value." The Court further said that (see p. 220) : " ..... once it is realised that the annual value is not necessarily ~ctual income, but is only a standard by which income may be measured, much 0£ the difficulty which appears on the surface is removed. In our opinion, the crucial question to be answered is whether merely because the Income-tax Act has adopted the annual value as the standard for determining the income, it must necessarily follow that, if the same standard is employed as a measure for any other tax, that tax becomes a tax on income ?" Considering the pith and substance of the legislation the Court said that (see p. 224) : "There is however nothing in the impugned Act to show that there was any intention on the part of the Legislature to get at or tax the income of the owner from the building ........ The annual va.lue, as has been pointed out, is at best only notional or hypothetical income and not the actual income. It is only a standard used in the Income-tax Act for getting at income, but that is not enough to bar the use of the same standard for assessing a Provincial tax. If a tax is to be levied on property, it will not be irrational to correlate it to the value of the property and to make some kind of annual value on the basis,of the tax without intending to tax **income.''** The ultimate conclusion of the Court was that in substance the impugned tax was not a tax on income. Before the vires of the Wealth-tax Act, as originally enacted came to be canvassed before this Court, the matter had engaged A B c D E F the attention of several High Courts. It would appear that throughout this web of decisions the principal and sometimes the G only question raised was, whether it was competent to the Union Parliament to enact a measure which would impose a liability on Hindu undivided families when Entry 86 provided for imposition of a tax on "individuals" and "companies". Chronologically the main decisions are as follows. In _Mahavirprasad_ _Badridas_ v. _Yagnik, Second Wealth Tax Officer(')_ the petitioner before the H Bombay High Court contended that "to the extent the Union (I) [1959) 37 I. T. R. 191. UNION v. H. s. DHILLON _(Mitter,_ J.) 129 A A Paryament authorised the levy of wealth tax on Hindu undivided families as units, the legislation is _ultra vires"_ and in support of that contention placed reliance on Entry 86, The submission assumed that the levy of wealth-tax fell under Entry 8p. The contention of the petitioner was repelled by Shah, J. (as he then was) holding that the expression "individuals" used in defining the II topic of legislation would include an association of individuals It is to be noted however that the learned Attorney-General appearing on behalf of the Union of India had contended that even assuming that by the 86th entry in List I _oi_ the. Seventh Schedule the Union Parliament was not invested wth power to legislate for levying wealth-tax on the assets of Hindu undivided families, the c Union Parliament was still so invested with authority by Art. 248 of the Constitution and Entry 97 in List I of the Seventh Scheduk. For the assessee it was submitted that "where the Constitution, in defining powers to legislate on a topic, has by incorporating wor<h of limitation expressly placed a restriction upon the competence of Parliament to enact legislation, relying upon the residuary powers contained in Art. 248 and Entry 97 in List I, the restricD tion cannot be ignored. Shah, J. dealt with this argument by obicrving: the Union Parliament was not invested wth power to legislate for E "On the view I have taken on the interpretation of the expression "individuals" in entry 86, I do not think it necessary to express any opinion on the question whe ther in the residuary powers of the Union Parliament, power to legislate on a topic which is partially dealt with by a specific entry in the first List may be regarded as included." The other learned Judge, Desai, J. expressed himself similarly. F In _N. V. Subramanian_ v. _Wealth Tax Officer(1)_ the vires of the Act was challenged by a Hindu undivided family before the Andhra Pradesh High Court the exact contention being "that the respondent cannot take action under the provisions of the Wealthtax Act, 1957 with respect to a Hindu undivided family on tht. ground that the Act, in so far as it enables ti}e levy and collection G of wealth-tax on the capital value of assets of a Hindu undivided family is beyond the legislative competence of the Union Parliament". No point appears to have been raised as to whether wealth-tax could at all be the subject of a levy under entry 86, as the High Court noted ( p. 571) : "The principal question that falls to be determined H is whether the expression 'individuals' in entry 86 can comprehend a Hindu undivided family." (I) 40 I.T.R. 567. **130** SUPREME COURT REPORTS [1972] 2 S.C.R. Reference was made to _Mahavirprasad's_ case (supra) as also decisions turning on the interpretation of the expression "individuals" in section 3 of the Income-tax Act ot 1922 and it was held that the principle of the said decisions applied to the construction of 'individual' in entry 86. Although the Court mentioned that reliance had been placed on behalf of the Wealth-tax Officer upon Entry 97 in List I to sustain the imposition it did not feel it necessary to examine the applicability of the said entry. The question cropped up again before the same High Court in _P._ _Ramabhadra Raju_ v. _Union of_ _India(')_ and was similarly answered. The argument on behalf of the assessee proceeded on the assumption that entry 86 was the relevant entry for levying wealth-tax but it was inapplicable to the case of a Hindu undivided family. B c In C. _K. Mammad Keyi_ v. _Wealth-tax Officer(')_ the assessee raised in the forefront 0.f his contention that "Parliament was not competent under entry 86 in the Union List to impose a tax ca1led the wealth-tax on the capital value of the assets of Hindu undivided **D** families and of Mappila Marumakkattayam tarwads and also 011 the capital value of the assets of any person to the extent that they are and may be deemed to be made up of agricultural income." Examining the different provisions of the Act, Velu Pillai, **J.** observed ( s_ee p. 282) : "These leave no room for doubt in our minds that the pith and substance or the true nature and character of the tax is that it is a levy on the capital value ot assets, subject to specified inclusions and exclusions in the content of the term 'assets', agricultural lands being one of the exclusions. To this extent, the wealth-tax is specifically and in substance covered by entry 86 in the Union List." The learned Judge felt no difficulty in accepting the argument that "lands and buildings" can form part of assets and that "taxes on lands and buildings"· within the meaning of Entry 49 of the State List may include a tax thereon on the basis of their capital value. He remarked that "the land tax. can be related to the annual or capital or sale value of the land." According to him : "the distinction, real r.nd vital _(i.e._ between entry 86 and entry 49) between a tax on lands and buildings on (I) ~~45~~ ~~l.T.R. 118.~~ ~~(2)~~ ~~44 l.T.R.~~ ~~277.~~ E F **G** **H** UNION _v._ H. s. DHILLON _(Mitter,_ _I.)_ 131 A the basis of their capital value, and a tax on such capital value itself treating lands and buildings as an item of asset, cannot be ignored." He further observed : In the case of a tax whose base or object is lands and B buildings. their annual or capital value is but a mea;urn or standard adopted to ensure the justness or reasonable ness of the levy, but in the case of a tax on capital value, such value is itself the base or object of the levy." c D E I 1 . f According to the learned Judge there was an over apping o imposts under Entry 86 an<l Entry 49 as in his view : " ...... enlry 49 must be held to be a general provision for taxes on lands and buildings and to yield to ~ntry 86 which must be held to be a special provision for a particular tax, a tax on the capital value of **assets."** "To allocate the legislative power to impose a tax on the capital value of lands and buildings, treating them as assets, entirely to the field covered by entry 86 in the Union List is not, as contended, to rob entry 49 in the State List of its content, for even excluding taxes under entries 45 to 48 in the State List, which have some relation to lands or buildiQgs or both, the field is stili open under entry 49 for legislation for other taxes on lands and buildings ...... There is, therefore, really no conflict and no overlapping of jurisdiction in the case of the two entries in question." 1lle learned Judge was' further of the view that : F On the other aspect of ihe case e.g. that a tax on the net wealth of an assessee to the exteinl that it is or may be said to be made up of his agricultural income and as such pertaining to the field marked by entry 46 in the State List the learned Judge pointed out that the charging section in the Act did illOt purport _to_ tax any income whatever but only the net wealth of an assessee as G H defined in terms of his assets. He agreed with the view of the Bombay and the Andhra Pradesh High Courts that a Hindu undivided family was not an entity distinct and separate from the members composing it and came within the connotation of the term 'individual' in entry 86. In this view, he felt it unnecessary to consider the alterillative argument advanced for the department· that even if entry· 86 was not applicable the Act was saved by Art. 218 read with entry 97 in the Union List. So far as the Allahabad High Court is concerned' the notable judgment is that of a Beinch of three Judges, _Juga/_ _Kishore_ v. 132 SUPREME COURT REPORTS [1'172] 2 S.C.R. _Wealth-tax Officer(_ _[1]_ _)._ The judgment of Gurtu, J. shows that the argwnent on behalf of the assessee was that Entry 86 did not justify an imposition on Hindu undivided families. He appears to have started with the assumption that imposition of tax on net wealth would bie C'overed by Entry 86 but inasmuch as the said entry would not justify an imposition on a Hindu.undivided family resort .could be had to the residuary power in Art. 248 to justify a legislation of this measure (seep. 100). Upadhya, J. was of the view that "the Act should be declared _ultra vires_ the Parliament so far as it imposed a tax on the ·capital assets of the Hindu urrdivided families" (p. 115). Jagdish Sahai, J. concluded that the Union legislature could have enacted the impugned provison by virtue of entry 86"-and it was "not necessary to go into the question whether entry 97 read with Art. 248 could sustain the impugned provision" (pp. 123-124). In _Sarjero Appasaheb Shitole_ v. _Wealth-tax Officer(')_ the three main points urged there : ( i) wealth-tax on lands dnd build ings is _ultra vires_ the powers of Parliament; (ii) under any circumstances Padiamer:t could not have imposed wealth-tax on Hindu undivided families; and (iii) the Wealth-tax Act was violative of Art. 14 of the Constitution. It was argued on behalf of the assessee that Entry 86 of List I had to be read as subject to Bntry 49 in List II; if so read it would be found that the field of "lands and buildings" was reserved for the State under Entry 49. The first point was rejected on the basis of the earlier decision in Balaka's case(') holding that "land" other than agricultural land. being a part of the assets, came within the scope of Entry 86. It was argued that Entry 86 of List I did not empower Parliament to levy wealth-tax on undivided families. This point was decided .against the assessee by the learned Judges observing (seep. 376) : "Whenever a question arises as to the source of power, the task of the court is to locate that power in one or the other of the Lists ... As mentioned earlier, it is not the case of the assessee that the power in question can he located either in List II or List HI. Therefore, it follows that Parliament has power to legislate on the subject either under entry 86, failing that under the re;iduary power given to it under entry 97. It makes no difference whether the source of the power is in entry 86 or in entry 97. Therefore, we hold that Parliament had compete.nee to enact a law providing for imposing wealth-tax on undivided families." The Madra' High Court had to deal with the question in _.Raja Sir M._ _A._ _Muthiah Chettiar_ v. _Wealth-tax Officer('')_._ _The (I) 44 l.T.R. 94. (2) 52 I.TR. 372. 'l 48 f.T.R. 472. (4) 53 I.T.R.504. A B c D E F G JI A B c E F G UNION _v._ H. s. DHILLON _(Mitter,_ _J.·)_ 133 petitioner there asked for the issue of a writ of prohibition to direct. the Wealth-tax Officer to forbear .from taking proceedin&s pursuant to the notices issued and a:lso for a _similar writ restraini.ng the Expenditure Tax Officer. The only question in the first petition was, whether s. 3 of the Wealth-tax Act offended Art 14 of the Constitution in that it left out of its ambit Marummallattayam tarwards. It was held that the charging section of the Wealth-tax Act did not fall within the mischief of the equality clause of the Constitution as Government was free to exercise a wide di~retion in selectiillg the subjects of legislation. The Kerela case above referred to came up in appeal to this Court : the judgment there i5 reported in 52 l.T.R. 605 and allowing the appeals and remJnding the case to the High Court this Court observed that it was not necessary to consider whether the view of the High Cou:t oo the first question relating to legislative competence was or was not correct. The judgment of the Special Bench of the Allahabad High Court already referred to came up for consideration in this Court in _Banarasi Das_ v. _Taxing Officer(')._ The appellants contended before this Court that the taxes which Parlianient was empowered to levy under entry 86 could only be imposed on individuals and if these bodies were outside the scope of entry 86 they could not be subjected to such a levy under Entry 97 "as that entry 1 eferre<I to matters other tha.n those specified in entries 1 to 96 of J .isc 1 as well as those enumerated in Lists II and III and since Weahh-tax was a matter specifically enumerate<! in Entry 86, Entry 97 could 1101 be held to take in the said tax." In regard to Art. 248 the argument was that it must be read with Entry 97 and if wealth-tax in respect of the capital value of assets of Hindu undivided families was outside both Entry 86 and Entry 97, the residuary power of legislation conferred on Parliament by Art. 248 could not be invoked in respect of tax imposed on the capital value of assets of Hindu undivided families by the impugned provision" (p. 358). On behalf of the Wealth Tax Officer it was argued tha~ the impugned provision was primarily valid under Entry 86 in List I. In the alter:native, it was argued that Entry 97 which was a residuary entry would t&ke in all matters not enumerated in List II or List Ill including any tax not mentio:1ed ~n either of those Lists. It wa~ urged that the words "matter" mentioned in Entry 97 cannot lake in taxes specified in Entry 86, but it refers to the subject matter in respect of which Parliament seeks to make a Jaw under Entry_ 97. TI1e bulk of the arguments there turned on the interpretation of the word "individuals" in Entry 86 and as to whether H the u~e of that word justified the levy of a tax on Hindu undivided fam1hes. Accordmg to this Court : ~) [1965]2 S.C.R. 355. **134** SUPREME COURT REPORTS [1972] 2 S.C.R. "the basic assumption on which the appellants' argument rests is that .the CQ!lStitution-makers wanted to exclude the capital value of the assets of Hindu undivided families from taxes. That is why their contention is that the impugned provision would not be sustained either under entry 86 or U111der entry 97 of List or even under Art. 248." (p. 360). To this the Court's reaction was : "On the face of it, it is impossible to assume !hat while thinking of levying taxes on the capital value of assets, Hindu u.ndivided families could possibly have been intended to be left out". (p. 361). **lt** was further said (p. 364) : "The Constitution-makers were fully aware that Hindu citizens of this country normally form Hindu undivided families and if the object was to levy taxes on the capital value of assets it is inconceivable that the word 'individuals' was introduced in the entry with the object of excluding from its scope such a large and extensive area which would be covered by Hindu undivided families." .Accordingly the Court came to the conclusion that the "impugned section is valid because Parliament was competent to legislate in respect of Hindu undivided families under Entry 86". Having come to the said conclusion it was said (see at p. 364) : "This question has been considered by several High Courts and the reported decisions .show consensus in judicial opinion in favour of the construction of Entry 86 which we have adopted." This is followed by reference to the decisions of the Bombay High Court, Andhra Pradesh High Court; Mysore High Court and the Madras High Court which have been already noted. According to this Court : " ..... these reported decisions show that the validity of the impugned provision was challenged before the High Courts on the ground that the Hindu undivided family is an association and as su'ch, the capital va!Ue of its assets could not be taxed under Entry 86." The Court observed at p. 365 _:_ "This question has been considered by several High Courts and the reported decisions .show consensus in judicial opinion in favour of the construction of Entry 86 which we have adopted." This is followed by reference to the decisions of the Bombay High Court, Andhra Pradesh High Court; Mysore High Court and the Madras High Court which have been already noted. According to this Court : **A** B c **D** E F G JI "Since we have come to the conclusion that Entry 86 covers cases of Hindu undivided families, it follows that the impugned provision is valid under the said Bntry itself. That being so, it is unnecessary to consider whether the validity of the impugned provision can be sus UNION v. H. S. DHILLON _(ltfitter,_ _J.)_ 135 tained under Emtry 97 or under Art. 24i8 of the Constitution." It will be noted that .the argument there was not whether a tax or net wealth was covered by the entry "capital value of the assets" but whether "individuals" on whom the burden was to fall under that entry, could include Hindu undivided families and this B Court was really not called upon to examine this aspect of the matter. In _S._ C. _Nawn_ v. _Wealth-tax_ _O.lficer_ (supra) the substance of the argument was that wealth-tax was chargeable only on Lhe accretion of wealth during the financial year and that Parliam.!nt could not have intended that the same assets should continue to be C charged to tax year after year. It is to be noted that in the writ petition filed in this Court, the assessee did not contend that the tax on net wealth was not chargeable under the Act of 1957 under Entry 86 or in any other Entry of the Union List and naturally there was no occasicm for this Court to go into that queslion as is clear from a passage as p. 110 of the judgment : D E G ff "The Parliament enacted the Wealth-tax Act in exercise of the power under List I of the Seventh Schedule entry 86---"Taxes on the capital value of assets, exclusive of agricultural lands, or individuals and companies; taxes on the capital of companies". That Wal> so assumed in the decision of this Court in _Banarsi Dass_ v. _Wealth Tax Officer, Special Circle, Meerut_ (supra), and counsel for the petitioner accepts that tqe subject of Wealth-tax Act falls within the terms of entry 86 List I of the Seventh Schedule. What he argued however was that. ....... since the expression 'inet wealth' includes non-agricultural lands and buildings of an assessee, and power to levy tax on lands and buildings is reserved to the State Legislatures by Entry 49 List II of the Seventh Schedule. the Parliament is Incompetent to legislate for the levy of wealth-tax on the capital value of assets which include non-agricultural l~nds and buildings." This was however turned down by the Court observing : "The tax which is imposed by entry 86 List I of the Seventh Schedule is not directly a tax on lands and buildings. It is a tax imposed on the capital value of the assets of ind!viduals and companies, on the valuntion date. The tax is not imposed on the components of the ass~ts of the assessee : it is imposed on the total assets which the assessee owns, and in determining the net we~lth not ?nly the encumbrances specifically charged aga,nst any item ~f asset, but the g~neral liability of the assessee to pay his debts and to discharge his lawful 136 SUPREME COURT RliPORTS [1972] 2 **l.C.Jl.** obligations have to .be taken into account. In certain exceptional cases, where a person owes no debts and is under no enforceable obligation to discharge any liability out of his assets, it may be possible to break up the tax which is leviable on the total assets into componentS and attribute a component to lands and buildings owned by an assessee. In such a ca~c, the component out or the total tax attributable to lands and buildings may in the manner of computation bear similarity to tax on lands and buildings levied on the capital or annual value under.entry 49 List II. But the legislative authority of Parliament is not determined by visualizing the possibility of exceptional cases of taxes under two differea:it heads operating similarly on tax-payers." The Court went on to add : "Again entry 49 List II of the Seventh Schedule contemplates the levy of tax on lands and buildings or both as units. It is normally not concerned with the division of interesi or ownership in the units of lands or buildings, which are brought to tax. Tax on lands and buildings is directly imposed on lands and buildings. and. bears a definite relation to it. Tax on the capital val.ue of assets bears no definable relation to lainds aml buildings which may form a component _oi_ the total assets of the assessee. By legislation in exercise of power under entry 86 List I tax is contemplated to be levied on the value of the assets. For the purpose of levying tax under entry 49 List JJ the State Legislature may adopt for determining the incidence of tax the annual or the capital value of the lands and buildings. But the adoption or the annual or capital value of land~ and buildings for determining tax liabili!y will not, in our judgment, mak_e the fields of legislation under the two cm.tries overlapping." It is therefore quite clear that the whole discussion proceeded on the assumption that imposition of tax on i!;e net wealth was justified under Entry 86 List 1. The assessee's contention wa~ that capital value of lands and buildings would fall under entry 49 and would therefore fall within the exclusive field of legislation of the State. This was turned down by the Court holding that the concept of a tax on net wealth which included not only the value of the assets but excluded the general liability of the as5essee to pay his debts was one entirely different from a concept of tax attributable to lands and buildings as such. With respect, this was the proper approach to the identification _oi_ the subject matter of legislation _i.e._ that the levy had no direct relationship to the aggregate value of the assets Of an "individual" but his net worth **A** **B** c **D** E F G **H** A B c D E F UNION _v._ H. s. DHILLON _(Mitter,_ J.) 137 which was to be determined by deductinJ!: his liabilities from the total value of the assets held by him. Ln _Assistunt Commissioner_ v. _Buckingham_ & _Camatic Co._ _Ltd._ (supra) Madras Act 12 of 1966 was _inter alia_ challenged before the Madras High Court as violative of Arts. 14 and 19( I )(f) of the Constitution. Before this Court it was contended _inter alia_ on behalf of the assessee that the impugned Act fell under Entry 86 List I a.n<l not under Entry 49 of List II, and as Entry 49 envisaged taxes on lands and buildings the impugned Act which imposed tax on land could not be held to fall under that entry. The. argument on behalf o.f the respondent was that the "impugned Act was, both in fonn and substance taxation on capital and was hence beyond the competence of lhe State Legislature." It was urged that "to tax on the basis of capital or principal value of assets was pe1 missible to Parliament under List I, entries 86 and 87 and to the State under entry 48 of List II "Taxation under Entries 86 and 88 formed a group of entries the scheme of which was to carry out the directive principle of Art. 39(c) of the Constitution anci the method of taxation of capital or principal value was prohibited even to Parliament in respect of other taxes and to the State:; except in respect of estate duty on agricultural land". "i11is was turned down by the Court observing (see p. 277) : " .... there is no warr<;nt for the assumption lhat entries 86, 88 of List I and Entry 48 of List II form a special group embodying any particular scheme .... The legislative entries must be given a large and liberal interpretation, the reason being that the allocation of the subjec~s to the lists is not by way of scientific or logical definition but by way of a mere _simplex enumeratio_ of broad categories. We see no reason, therefore, for holding th:n the entries 86 and 87 of List I preclude the State Legislature from taxing capital value of lands and buildings under Entry 49 of List II." The Court went on to add : "In our opinion there is no conflict between Entry 86 of List I and Entry 49 of List II. The basis of taxation G under th_e two entries is quite distinct. As regards Entry 86 of List I the basis of the taxation is the capital value of the asset. It is not a tax directly on the capital value of assets of individuals and companies on the valuation date. The tax is not imposed on the components of the assets of the assessee. The tax under Entry H 86 proceeds on the principle of aggregation and i:; imposed on the totality of the valu,e of the assets. It is imposed on the total assets which the assessee owns and in determining the net wealth not only the encumbrances 10-L256S•ip.C!/72 138 SUPREME COURT REPORTS (1972] 2 S.C.R. specifically charged against any item of asset, but the general liability of lhe assessee to pay his debts and to ,discharge his lawful obligations have to be taken into account .... But entry 49 of List II contemplates a levy of tax on lands and buildings or both as units. _1_ t is not concerned with the division of interest or ownership in the units of lands or buildings which are brought to tax. Tax on lands and buildings is directly imposed on lands 3!IJd buildings and hears a definite relation to it. Tax on the capital value of assets bears no relation to lands and buildings which may form a component of the total assets of the asscsscc ..... For the purpose of levying tax under Entry 49. List II the State Legislature may adopt for determining the incidence of iax the annual or t!i~ capital value of the lands and buildings. But the adoption of the annual or capital value of lands and building' for determining tax liability will not make the fields of legislation under the two entries overlapping. The two taxes are entirely different in their basic concept :ind fall on different subject matters." A B c D _Sri Prithvi Collon Mills Ltd._ _v._ _Broach Municipality_ (>upc.i) was the aftem1ath of the judgment of this Court in _Patd Gordhan-_ _das's_ case (supra). To undo the effect of that decision the Gujarat Legislature passed the Gujarat Imposition of Taxes by Municipalities (Validation) Act 1963 seeking to validate the I: imposition of the tax as well as to avoid any future interpretatiC!ll of the Act on the lines on which Rule 350-A was construed. Sec. 3 of the Act was passed to validate past assessments and collection of rates on lands and buildings on the basis _of_ capital value or a percentage of capital value as also all assessments made before the passing of the Validation Act. At the same time s. 99 was enacted in the Gujarat Municipalities Act to provide for the !evy _1_ of a tax on lands aind buildings "to be based on the annual letting value or the capital value or the percentage of the capital valne of the buildings or land> or both/" The main question before the Court was whether the legislature possessed competence to pass a law imposing a tax on lands and buildings on the basis of a percentage of their capital value. The Court noted that it was con- G ceded by counsel for the appellants that sec. 99 of the Municipalities Ac:t was permissible legislation under Entry 49 of List Tl. The Court observed that _:_ "the doubt which was created by entry 86 of List I no longer exists after the decision in _Sudhir Chandra_ H _Nawn's_ _case_ (supra). As it had been held in that case that tax under entry 86 was not a direct tax on lands and buildings but on net assets it was open to a State Legis .. UNION _v._ H. s. DHILLON• _(Mitter,_ I.) 139 A lature to levy a tax on lands and buildings as units indicating the mode of levy which could ~lude one based on a percentage of the capital value." It will thus be clear from the elaborate discussion of the arguments in all the cases regarding the imposition of wealth-tax in B different High Courts that the principal ground of a'ttack on the Wealth-tax Act was that "Hindu undivided families" were not "individuals" and could not be brought to tax under ~ntry 86 of List I directly or by the aid of Art. 248 read with Entry 97 of the said List. In most of the cases the learned Judges did not feel called upon to express any opinion with regard to the applicability of Entry 97. Barring the decision in _Mohammad Keyi's_ case in C the Kerala High Cou'rt, little was said about the scope of this Entry read with Art. 248. When the matter came to this Court effectively for the first time in _BanarsiDas's_ case (supra) the Judges did not think that the legislative history in the matter of denotation of the word "individuals" on which the appellants relied could really afford any material assistance 1n construing the word "individuals" D in entry 86. The Court held that "individuals" in Entry 86 would include Hindu undivided families as had been the view of many High Courts. With respect crio serious attempt was made in any of the cases to properly identify the subject matter of the legislation imposing the tax and ascertain whether capital value of assets meant the E same thing as net wealth as defined in the Wealth Tax Act. The various decisions and authorities cited above which bear on the true meaning of the expression "capital value of assets" make it amply clear that the same can only mean the market value of the assets less any encumbrances charged thereon. The expression does not take in either the general liabilities of the individual owning F thetn or in particular the debts owed in respect of them. In my view, the subject matter of legislation by Wealth Tax Act is not covered by Entry 86 but·by Entry 97 of List I. The capital value of the assets of an individual is as different from his net weaith as the market value of the saleable assets of a business is from its value as a going concern ignoring the goodwill. When a business G is valued as a going concern its assets and liabilities whether charged on the fixed assets or not have to be taken into account but in computing the value of the tangible assets of the business the general liability of the business apart from the encumbr~nces E on its assets do not figure. To what use entry 86 can be put 1s not for us to speculate upon. It appears t~at the view of Professor H -Kaldor as expressed in his report on Indian Tax Reform (Chapter 2) was that an annual tax on wealth should be I! tax on accrual and not a tax on the principal itself. Hi~ suggest10n was that the tax should be on a graduated scale with a very low rate at tbe 140 SUPREME COURT REPORTS [1972] 2 S.C.R. lowest slab so that an assessee could meet both the i,ncome-tax liability and the weahh-tax liability without feeling the pinch. It must also ]:>e noted that in his view agricultural land could only be taxed by way of wealth as a result of a Constitutional amendment. The Govenrunent of India do not appear to have proceeded on the lines of Professor Kaldor's suggestion. Probably Entry 86 of List I can be utilised for levying a capital levy in an emergency or by way of a marginal imposition of an individual's assets without' considering his holdi,ng of agricultural land. Even assuming Entry 49 of List II envisages imposition of taxes on lands and buildings adopting a mode of a certain percentage on their capital value. lands and buildings must still be subject to taxation as units and **A** **8** no aggregation is possible. Further, no State Legislature is CORI- **-c** petent to levy a tax which would embrace an individual's assets m the shape of lands and buildings situate outside the Stale. The subject matter of wealth tax including or excluding agris;ultural lands etc. is not covered by Entry 86 of List I read with Art. 246 of the Constitution, but by Entry 97 of List I read with Art. 248. Although read by itself Entry 97 may seem to suggest **D** that the expression "any other matter" has reference to the other entries in List I, Art. 248 ( l) makes it clear beyond doubt that such matters are those which are not covered by ~tries in List II or List III. Th.e Constitution has not denied to the Union power to levy wealth tax inclusive of agricutlural la.lid as was contended for on behalf of the respondents. The residuary field of legislation no longer ·lies barren or unproductive. It has already yielded fruitful sources _ci_ taxation like the Gift Tax Act, the Expenditure Tax Act and borrowings as under the scheme of annuity deposits. . **E** Jn the above view of the matter, it is not 'necessary lo discuss the points of similarity between the scheme of distribution of **F** legislative power under our Constitution and sections 91 and 92 of the British North America Act of 1867. Nor it it reJev3nt to consider whether the words "exclusive of agricultural land" in Entry 86 of List I are words of exclusion and not of prohibition. I would therefore allow the appeal :ind set aside the Judomci:t **G** of the High Court but make l!lo order as to costs. ~ ORDER In view of the majority judgments the appeal is aUowel. There shall be no order as to costs . **.V.P.S..**