2025 (9) TMI 106 - SC - Income Tax

Continuation of prosecution despite binding departmental circular and manuals amounts to abuse of process; prosecution quashed

Vijay Krishnaswami @ Krishnaswami Vijayakumar Versus The Deputy Director of Income Tax (Investigation)

The SC held that continuation of prosecution by the Revenue after a Settlement Commission order, despite non-compliance with the department's binding ... Continuation of the prosecution initiated by the revenue u/s 276C(1) against the appellant after passing an order by the Settlement Commission, would amount to abuse of process of Court - Power of Settlement Commission to grant immunity from prosecution and penalty u/s 245H - whether the High Court was justified to dismiss the quashing petition filed by the appellant, and if not, what relief can be granted? HELD THAT:- After perusal of the provisions of the IT Act, various circulars issued by the department and also the judgments referred hereinabove, it can be safely culled out that if an assessee has made suppression of income without disclosing the manner in which the excess amount was earned and concealed the account making wilful attempt to evade the tax which may be imposable and chargeable or payable, he/she is required to be prosecuted. Therefore, the recourse to lodge prosecution was made permissible subject to the department’s circular dated 24.04.2008 which provided for confirmation by ITAT in case the penalty imposed u/s 276C(1) is exceeding Rs. 50,000/-. It is relevant here to note that the said circular was in vogue on the date of the grant of sanction by PDIT to DDIT for lodging the prosecution against the appellant. The said circular has been reaffirmed by the Prosecution Manual, 2009 and the clarification issued by the CBDT in 2019. As such, the circulars discussed above, were binding on the authorities and required to be adhered to while lodging the prosecution by the Revenue. Admittedly, in the present case, the complaint was filed by DDIT after sanction of PDIT before the Additional Chief Metropolitan Magistrate (E.O.II), Egmore, Chennai, on 11.08.2018. Application under Section 245(C) was filed by the appellant before the Settlement Commission later. On the date of lodging the prosecution, the finding of concealment of income or imposition of the penalty of more than Rs. 50,000/- has not been recorded by the ITAT. Nothing has been brought on record to show that any wilful attempt to evade the payment of tax by assessee was made. No explanation has been put forth by Revenue to demonstrate as to why PDIT or DDIT did not comply the procedure while lodging prosecution in this case. Therefore, in our view, the act of the authority in continuing prosecution is in blatant disregard to their own binding circular dated 24.04.2008 and in defiance to the guidelines of the Department. The prosecution lodged with the help of proviso to sub-section (1) to Section 245H was in defiance to the circular dated 24.04.2008, which was in vogue. It was the duty of the PDIT and DDIT to look into the facts that in absence of any findings of imposition of penalty due to concealment of fact, the said prosecution cannot be proved against the assessee. It seems, even after passing the order by the Settlement Commission on 26.11.2019, it was brought to the notice of the High Court, but the authorities were persistent to pursue the prosecution without looking into the procedural lapses on their part. Such an act cannot be construed in right perspective and the Revenue have acted in blatant disregard to binding statutory instructions. Such willful non-compliance of their own directives reflects a serious lapse, and undermines the principles of fairness, consistency, and accountability, which in any manner cannot be treated to be justified or lawful. It was the duty of the High Court to examine the facts of the case in their right context and assess whether, in light of the above circumstances, the continuation of the prosecution would serve any meaningful purpose in establishing the alleged guilt. Upon a holistic consideration of the matter, we are of the view that the conduct of the authorities lacks fairness and reasonableness, and the High Court’s approach appears to be entirely misdirected, having failed to appreciate the factual and legal position in right earnest. We are constrained to allow these appeals setting aside the order impugned passed by the High Court. It is directed that prosecution lodged by the Revenue against the appellant shall stand quashed. 1. ISSUES PRESENTED AND CONSIDERED i) Whether continuation of a prosecution under Section 276C(1) of the Income Tax Act, initiated by Revenue prior to an application under Section 245C, amounts to abuse of the process of court where the Settlement Commission subsequently, under Section 245D(4), grants immunity from penalty and records full and true disclosure? ii) Whether the departmental guidelines, circulars and prosecution manual regulating initiation of prosecution under Section 276C(1) are binding on Income-tax authorities and relevant to the legality of lodging/continuation of prosecution, including the threshold and requirement of confirmation by ITAT? iii) Whether sanction under Section 279(1) (permission by specified income-tax authority) was lawfully and competently accorded for instituting prosecution under Section 276C(1), in the factual matrix where no adjudication of concealment/penalty had occurred? iv) Whether the High Court erred in refusing to quash the prosecution in circumstances where (a) the Settlement Commission's order under Chapter XIXA found full disclosure and granted immunity from penalty, and (b) Revenue's officers flagrantly disregarded departmental instructions governing prosecution? 2. ISSUE-WISE DETAILED ANALYSIS Issue i - Effect of settlement order under Sections 245D(4), 245H and conclusive character under Section 245-I; abuse of process. Legal framework: Sections 245C-245I create a statutory settlement mechanism; Section 245H empowers the Settlement Commission to grant immunity from prosecution and penalty subject to proviso that no immunity shall be granted where prosecution proceedings were instituted before receipt of the application under Section 245C; Section 245I declares every order of settlement under Section 245D(4) to be conclusive as to matters stated therein. Precedent treatment: The legislative history (Wanchoo Committee) and statutory text demonstrate intent to make settlement an effective and conclusive device to avoid unnecessary criminal proceedings against taxpayers who fully disclose. No precedent was overruled; the Court relied on statutory purpose and existing jurisprudence on administrative-finality principles. Interpretation and reasoning: The Court observed a distinction between the literal saving in the first proviso to Section 245H(1) (which preserves prosecutions instituted prior to application) and the conclusive effect of a subsequent settlement order under Section 245I. Where the Settlement Commission, after full disclosure, records that additional income is not due to suppression and grants immunity from penalty, the continuing of prosecution despite absence of any finding of wilful evasion undermines the conclusive object of settlement and may render continuation abusive. The Court emphasized that an order under Section 245I is conclusive as to matters stated therein and that prosecutorial persistence in face of such a conclusive finding, particularly when prosecution lacks essential proof of mens rea, can constitute abuse of process. Ratio vs. Obiter: Ratio - A prosecution continued notwithstanding a conclusive settlement order that finds full disclosure and grants immunity from penalty, and in the absence of evidence of wilful evasion, may be quashed as an abuse of process. Obiter - Observations on the balance between the literal proviso to Section 245H(1) and the practical effect of Section 245I, and the policy underpinning settlement machinery. Conclusion: Where Settlement Commission under Section 245D(4) records full and true disclosure and grants immunity from penalty and there is no subsequent reopening under Section 245D(6), continuation of prosecution that cannot establish mens rea is an abuse of process and susceptible to quashing despite the prima facie saving in proviso to Section 245H(1). Issue ii - Binding nature and relevance of departmental circulars, Prosecution Manual and CBDT clarification to initiation/continuation of prosecution under Section 276C(1). Legal framework: CBDT issues administrative circulars under Section 119 of the Income Tax Act and general administrative instruments (Prosecution Manual) to regulate identification and processing of prosecution cases; courts have held such circulars binding on Revenue authorities in administration of the Act, though courts retain power to declare statutory meaning. Precedent treatment (followed): The Court cited authoritative precedents establishing that departmental circulars and instructions issued under statutory powers are binding on the revenue authorities (subject to judicial interpretation), and that such circulars may mitigate the rigour of the statute for the benefit of taxpayers. Interpretation and reasoning: The Court held that departmental instructions (2008 circular, Prosecution Manual 2009, 2019 CBDT clarification) set thresholds and conditions (e.g., confirmation by ITAT, tax liability thresholds, Collegium approval for lower amounts) which were in force when sanction was accorded. Where authorities disregard those binding departmental directions and proceed with prosecution absent required preconditions (e.g., confirmation of concealment/ITAT order or Collegium approval for tax below threshold), such disregard is a serious procedural lapse undermining fairness and consistency and could render prosecution improper. Ratio vs. Obiter: Ratio - Departmental circulars and prosecution guidelines are binding on authorities administering the Income Tax Act and non-compliance with mandatory procedural prerequisites relevant to prosecution is material to the question of abuse of process. Obiter - Discussion of policy reasons and historical context for issuance of such circulars. Conclusion: The departmental circulars and Prosecution Manual were binding on prosecuting authorities; their non-compliance in this matter was a material irregularity warranting quashing of prosecution where the prosecution otherwise lacked the necessary confirmation of concealment and compliance with thresholds/procedures. Issue iii - Competence of sanctioning authority under Section 279(1) where no penalty or confirmation for concealment exists. Legal framework: Section 279(1) requires previous sanction of specified senior income-tax authorities for instituting prosecution under Section 276C and related sections; Section 279(1A) bars proceedings where penalty imposed or imposable has been reduced/waived under specified provisions. Precedent treatment: No direct precedent overruled; Court applied statutory construction and administrative law principles to evaluate competence. Interpretation and reasoning: The Court noted that sanction was formally obtained from the specified authority (PDIT) but emphasized that competence to sanction is not divorced from reasonableness and adherence to departmental policy and statutory purpose. Where sanction is given while essential factual predicates (confirmation of concealment, compliance with circular thresholds) are absent, sanctioning authority's act, though facially conforming to Section 279, may nonetheless reflect neglect of binding departmental instructions and thereby contribute to prosecutorial abuse. The Court also stressed that prosecution under Section 276C(1) requires proof of mens rea - wilful attempt to evade imposition of tax - and that absence of such proof renders prosecution futile. Ratio vs. Obiter: Ratio - Formal sanction under Section 279(1) must be exercised in consonance with statutory scheme and binding departmental guidelines; absence of the factual/legal predicates relevant to prosecution undermines the legitimacy of sanction and may justify quashing. Obiter - Broader remarks on internal discretion of sanctioning authorities. Conclusion: Although sanction was formally accorded, the failure to ensure compliance with binding departmental procedures and absence of a factual basis (confirmed concealment) rendered the sanction unsustainable in context and contributed to abuse of process. Issue iv - High Court's approach to quashing and final relief. Legal framework: High Courts possess powers under Section 482 CrPC to quash criminal proceedings in cases of abuse of process, futility, or where continuation would offend fairness and justice. Precedent treatment: Applied established principles about quashing and abuse of process; relied on binding nature of circulars and conclusive effect of settlement orders. Interpretation and reasoning: The Court found that the High Court failed to give due weight to (a) the Settlement Commission's express finding of full disclosure and grant of immunity from penalty, (b) the binding departmental circulars and CBDT clarification which required confirmation/threshold compliance before prosecution, and (c) absence of material to establish mens rea required under Section 276C(1). The combined effect of these factors rendered continuation of the prosecution unreasonable and abusive. Accordingly, the High Court's refusal to quash was misdirected. Ratio vs. Obiter: Ratio - Where prosecutorial conduct flagrantly disregards binding departmental instructions and persists despite a conclusive settlement order finding full disclosure and no suppression, the High Court should quash the prosecution under its inherent powers; continuation would amount to abuse. Obiter - Observations on appropriate interplay between settlement machinery and criminal process. Conclusion: The High Court's dismissal of the quashing petition was set aside; prosecution quashed as amounting to abuse of process. The Court imposed costs on Revenue to vindicate abuse and deter similar conduct. Final operative conclusion (The Court): Prosecution under Section 276C(1) was quashed because (i) departmental guidelines and CBDT clarifications binding on authorities were not complied with; (ii) Settlement Commission under Section 245D(4) recorded full disclosure and granted immunity from penalty with conclusive effect under Section 245I; (iii) prosecution lacked requisite factual foundation to prove wilful attempt to evade tax; and (iv) continuation of prosecution in such circumstances constituted abuse of process. Costs were imposed on Revenue.