1989 (2) TMI 116 - SC - Central Excise

Excise duty demand beyond 6 months requires proof of fraud or willful suppression under Section 11A proviso

COLLECTOR OF CENTRAL EXCISE Versus CHEMPHAR DRUGS & LINIMENTS

The SC dismissed the appeal challenging a Tribunal decision on excise duty demand time limits. The case involved demand made beyond 6 months from show ... Applicability of time limits for demand of excise duty - demand made beyond 6 months from the receipt of show cause notice - Suppression of facts - Mandatory requirements of Section 11A - fraud or collusion or wilful misstatement or suppression or contravention of any provision of any Act - Held that:- In order to make the demand for duty sustainable beyond a period of six months and up to a period of 5 years in view of the proviso to sub-section 11A of the Act, it has to be established that the duty of excise has not been levied or paid or short-levied or short-paid, or erroneously refunded by reasons of either fraud or collusion or wilful misstatement or suppression of facts or contravention of any provision of the Act or Rules made thereunder, with intent to evade payment of duty. Something positive other than mere inaction or failure on the part of the manufacturer or producer or conscious or deliberate withholding of information when the manufacturer knew otherwise, is required before it is saddled with any liability, before the period of six months. Whether in a particular set of facts and circumstances there was any fraud or collusion or wilful misstatement or suppression or contravention of any provision of any Act, is a question of fact depending upon the facts and circumstances of a particular case. The Tribunal came to the conclusion that the facts referred to hereinbefore do not warrant any inference of fraud. The assessee declared the goods on the basis of their belief of the interpretation of the provisions of the law that the exempted goods were not required to be included and these did not include the value of the exempted goods which they manufactured at the relevant time. The Tribunal found that the explanation was plausible, and also noted that the Department had full knowledge of the facts about manufacture of all the goods manufactured by the respondent when the declaration was filed by the respondent. The respondent did not include the value of the product other than those falling under Tariff Item 14E manufactured by the respondent and this was in the knowledge, according to the Tribunal, of the authorities. These findings of the Tribunal have not been challenged before us or before the Tribunal itself as being based on no evidence. In that view of the matter and in view of the requirements of Section 11A of the Act, the claim had to be limited for a period of six months as the Tribunal did. We are, therefore, of the opinion that the Tribunal was right in its conclusion. The appeal therefore fails and is accordingly dismissed. The core legal questions considered in this judgment revolve around the applicability of time limits for demand of excise duty under the Central Excises and Salt Act, 1944, specifically:1. Whether the Customs, Excise & Gold (Control) Appellate Tribunal was legally justified in restricting the demand of excise duty to six months prior to the issuance of the show-cause notice, despite the invocation of a longer period on the ground of suppression of information by the respondent.2. Whether there was suppression of facts, fraud, collusion, wilful misstatement, or contravention of the Act or Rules with intent to evade payment of duty, which would justify extending the limitation period for recovery of duty beyond six months to five years under Section 11A of the Act.3. The proper interpretation of exemption notifications (Nos. 80/80 and 71/78) concerning the inclusion or exclusion of the value of certain goods (specifically patent and proprietary medicines and pharmacopoe preparations) in calculating the aggregate value of clearances that determine eligibility for exemption.Issue-wise Detailed AnalysisIssue 1: Legality of Restricting Demand of Duty to Six Months PeriodThe relevant legal framework is Section 11A of the Central Excises and Salt Act, 1944, which governs the recovery of duties not levied or paid. The provision stipulates a six-month limitation period for issuing a show-cause notice from the relevant date, but extends this period to five years if the non-payment arises from fraud, collusion, wilful misstatement, suppression of facts, or contravention of the Act or Rules with intent to evade duty.The Tribunal's interpretation hinged on whether the extended five-year period could be invoked. It held that mere non-inclusion of certain goods' values in the declaration, based on the respondent's interpretation of the exemption notifications, did not amount to suppression or fraud. The Tribunal noted that the respondent had submitted classification lists regularly, which included the products manufactured, and that departmental officers had visited the factory and were aware of the goods produced. This demonstrated that there was no deliberate withholding of information to evade duty.The Court concurred with this reasoning, emphasizing that to invoke the extended limitation period, there must be positive evidence of fraud or wilful suppression, not merely a failure to disclose or a difference in legal interpretation. The Tribunal's factual findings that the respondent's explanation was plausible and that the department had full knowledge of the goods manufactured were accepted as unchallenged and supported by evidence.Therefore, the claim for duty demand was rightly restricted to the six-month period preceding the show-cause notice, as the extended five-year period was not applicable.Issue 2: Existence of Suppression, Fraud or Wilful MisstatementThe Court examined whether the respondent's conduct constituted fraud or suppression under the Act and Rules. The respondent had declared only the value of patent and proprietary medicines under Tariff Item 14E but excluded pharmacopoe preparations under Tariff Item 68, relying on their interpretation of the exemption notifications.The Tribunal found that the respondent had not acted with intent to evade duty. The classification lists and survey registers showed that the department was aware of the full range of products manufactured, including those under Tariff Item 68. The respondent's failure to include the value of these goods in the exemption calculation was based on a bona fide interpretation rather than a wilful misstatement.The Court emphasized that invocation of the extended limitation period requires something 'positive other than mere inaction or failure,' such as deliberate suppression or misstatement with intent to evade duty. Since the department had knowledge of the facts, and the respondent's explanation was plausible, the element of fraud or suppression was absent.Issue 3: Interpretation of Exemption Notifications and Inclusion of Goods ValueThe exemption notifications (Nos. 80/80 and 71/78) excluded manufacturers from exemption if the aggregate value of excisable goods cleared during the preceding financial year exceeded Rs. 20 lakhs, considering all excisable goods cleared under the First Schedule.The respondent contended that the value of pharmacopoe preparations under Tariff Item 68, which included alcohol-containing medicines, was not required to be included in calculating the aggregate value for exemption purposes. The department disputed this, asserting that the value of all specified goods should be included.The Tribunal accepted the respondent's interpretation, noting that the department had not challenged this interpretation as fraudulent or incorrect with intent to evade duty. The department's awareness of the manufacturing of these goods further weakened any claim of suppression.The Court did not disturb this finding, implicitly upholding the respondent's interpretation as a plausible legal position, which negated any claim of suppression or misstatement.Competing Arguments and Their TreatmentThe revenue argued that the respondent suppressed information and misdeclared the value of goods cleared, warranting the extended five-year limitation period. The respondent countered that there was no suppression but a bona fide interpretation of the exemption notifications, supported by prior approvals and departmental knowledge.The Tribunal and the Court gave greater weight to the factual findings that the department was fully aware of the goods manufactured and that the respondent's interpretation was plausible. The absence of any evidence of deliberate concealment or fraud led to the rejection of the revenue's claim for extending the limitation period.ConclusionsThe Court concluded that the Tribunal was justified in restricting the demand for duty to the six months preceding the show-cause notice. The extended limitation period under Section 11A could not be invoked in the absence of evidence of fraud, collusion, wilful misstatement, or suppression of facts with intent to evade duty. The respondent's bona fide interpretation of the exemption notifications and the department's knowledge of the facts negated any such intent.Significant Holdings'In order to make the demand for duty sustainable beyond a period of six months and up to a period of 5 years in view of the proviso to sub-section 11A of the Act, it has to be established that the duty of excise has not been levied or paid or short-levied or short-paid, or erroneously refunded by reasons of either fraud or collusion or wilful misstatement or suppression of facts or contravention of any provision of the Act or Rules made thereunder, with intent to evade payment of duty.''Something positive other than mere inaction or failure on the part of the manufacturer or producer or conscious or deliberate withholding of information when the manufacturer knew otherwise, is required before it is saddled with any liability, before the period of six months.''The Departmental authorities were in full knowledge of the facts about manufacture of all the goods manufactured by them when the declaration was filed by the appellants. That they did not include the value of the product other than these falling under T.I. 14E manufactured by the appellants has to be taken to be within the knowledge of the authorities.'The Court upheld the principle that the limitation for recovery of excise duty is strictly governed by Section 11A, and extended limitation periods apply only when there is clear evidence of fraud or suppression with intent to evade duty. Bona fide differences in interpretation and departmental knowledge preclude invocation of extended limitation.Accordingly, the final determination was that the demand for excise duty beyond six months prior to the show-cause notice was not maintainable, and the appeal was dismissed.