1969 (2) TMI 10 - SC - Income Tax

Rule 24 permits dismissal without merit review violates Section 33(4) requiring substantive adjudication of appeals

Commissioner of Income Tax, Madras Versus S. Chenniappa Mudaliar

Commissioner of Income Tax, Madras Versus S. Chenniappa Mudaliar - [1969] 74 ITR 41 (SC), 1969 AIR 1068, 1969 SCR (3) 818, 1969 SCC (1) 591, 1969 INSC 56 1. ISSUES PRESENTED and CONSIDEREDThe core legal questions considered by the Court were:(a) Whether Rule 24 of the Appellate Tribunal Rules, 1946, insofar as it empowers the Appellate Tribunal to dismiss an appeal for default of appearance of the appellant, is ultra vires the provisions of Section 33(4) of the Income Tax Act, 1922 (the 'Act').(b) Whether, on the facts and circumstances of the case, the sums of Rs. 72,515 and Rs. 3,14,100 were assessable to tax under Section 10(5A) of the Income Tax Act. (This second question was referred but the judgment primarily focused on the first question.)2. ISSUE-WISE DETAILED ANALYSISIssue (a): Validity of Rule 24 of the Appellate Tribunal Rules, 1946 in relation to Section 33(4) of the Income Tax ActRelevant Legal Framework and Precedents:Section 33(4) of the Income Tax Act mandates that the Appellate Tribunal, after giving both parties an opportunity to be heard, shall pass such orders 'thereon' as it thinks fit and communicate the same to the parties. The term 'thereon' indicates that the orders must relate to the subject matter of the appeal and be decided on the merits.Section 5A(8) empowers the Appellate Tribunal to regulate its own procedure, including the framing of rules such as Rule 24.Rule 24, as originally framed in 1941, allowed the Tribunal discretion to either dismiss an appeal for default of appearance or hear it ex parte. The 1948 amendment removed the discretion to hear ex parte and provided only for dismissal for default, without any provision for restoration of the appeal.Earlier High Court decisions had upheld Rule 24's validity, reasoning that the Tribunal had inherent jurisdiction to restore appeals dismissed for default, and that Section 33(4) did not expressly require disposal only on merits. These cases included Shri Bhagwan Radha Kishen v. Commissioner of Income Tax (Allahabad), Ravula Subba Rao v. Commissioner of Income Tax (Madras), and Mangat Ram Kuthiala v. Commissioner of Income Tax (Punjab).Court's Interpretation and Reasoning:The Special Bench of the Madras High Court, and subsequently the Supreme Court, held that Section 33(4) requires the Appellate Tribunal to dispose of appeals on their merits regardless of the appellant's presence or absence. The use of the word 'thereon' in Section 33(4) confines the Tribunal's orders to the subject matter of the appeal, implying a substantive adjudication rather than summary dismissal for procedural default.The Court emphasized that the Tribunal is a quasi-judicial body with expertise in law and accountancy, and its function is to decide questions of fact and law arising in income tax assessments. Dismissing an appeal for default of appearance without a decision on merits would frustrate the statutory scheme, including the High Court's power under Section 66 to hear questions of law arising from the Tribunal's orders, and the Supreme Court's appellate jurisdiction under Section 66A.The Court noted that the absence of any provision in Rule 24 or other rules for restoration of appeals dismissed for default further undermined the rule's validity, as it could permanently bar an appellant from substantive adjudication.Key Evidence and Findings:The factual background involved an appellant who failed to appear due to a misapprehension by his auditors about the hearing date, and the Tribunal dismissed the appeal for default of appearance under Rule 24 (as amended in 1948). The appellant's subsequent petition for restoration was rejected by the Tribunal. The High Court referred the question of Rule 24's validity to a Special Bench, which found it ultra vires Section 33(4).Application of Law to Facts:The Court applied the statutory language and scheme of the Act to the facts, concluding that the Tribunal's dismissal of the appeal without adjudication on merits was inconsistent with Section 33(4). The rule enabling dismissal for default of appearance, without restoration, conflicted with the statutory requirement that the Tribunal dispose of appeals by passing orders on the merits.Treatment of Competing Arguments:The appellant contended that Rule 24 was valid under Section 5A(8) and not repugnant to Section 33(4), relying on prior High Court decisions. The Court distinguished those precedents on the basis that they lacked detailed reasoning and that the statutory scheme, properly construed, mandated merit-based disposal. The Court rejected the notion that the Tribunal could dismiss appeals summarily for default without violating the Act.Conclusions:The Court concluded that Rule 24, insofar as it permits dismissal of appeals for default of appearance without adjudication on merits, is ultra vires Section 33(4) of the Income Tax Act. The Tribunal must dispose of appeals on their merits regardless of the appellant's presence, ensuring the statutory rights of appeal and reference are preserved.Issue (b): Assessability of the sums under Section 10(5A)This issue was referred to the High Court but was not the focus of the Supreme Court's judgment. The Court did not deliver a substantive ruling on the taxability of the sums, concentrating instead on the procedural question regarding Rule 24.3. SIGNIFICANT HOLDINGS'Section 33(4) itself indicates by the use of the word 'thereon' that the decision should relate to the subject matter of the appeal. Rule 24, therefore, to be consistent with Section 33(4) could only empower the Tribunal to dispose of the appeal on its merits, whether there be an appearance of the party before it or not.''The provisions contained in Section 66 about making a reference on question of law to the High Court will be rendered nugatory if any such power is attributed to the Appellate Tribunal by which it can dismiss an appeal, which has otherwise been properly filed, for default without making any order thereon in accordance with Section 33(4).''It follows from all this that the Appellate Tribunal is bound to give a proper decision on questions of fact as well as law which can only be done if the appeal is disposed of on the merits and not dismissed owing to the absence of the appellant.''In the event of repugnancy between the substantive provisions of the Act and a rule, it is the rule which must give way to the provisions of the Act.'Core principles established include:The Appellate Tribunal's power to regulate procedure under Section 5A(8) is subject to the substantive provisions of the Income Tax Act.The Tribunal must dispose of appeals on their merits, even if the appellant fails to appear, consistent with Section 33(4).Rules permitting dismissal of appeals for default of appearance without adjudication on merits and without provision for restoration are ultra vires and invalid.The statutory scheme contemplates that appeals are to be decided on merits to enable proper exercise of rights of reference and appeal under Sections 66 and 66A.Final determination on the principal issue was that Rule 24, as amended in 1948, is ultra vires Section 33(4) of the Income Tax Act and cannot validly empower the Appellate Tribunal to dismiss appeals solely for default of appearance without disposing of them on their merits.