2025 (10) TMI 1174 - HC - GST

Quashed higher penalty under Section 47(2) for late GSTR-09; limited by three-year limit and Rule 80(1A)

HC quashed the impugned order imposing higher penalty under Section 47(2) for non-filing of the annual GSTR-09 for 2020-21, noting the statutory ... Levy of higher penalty on the Petitioner u/s 47(2) of the respective GST enactments - levy of late fee - failure to file the annual return in GSTR-09 for the Tax Period 2020-2021 - HELD THAT:- It is noticed that as per Sub-Section (2) to Section 44 of the respective GST enactments, a registered person cannot be allowed to furnish the annual return under Sub-Section (1) to Section 44 of the respective GST enactments for the Financial Year after expiry of the period of 3 years from the due date for furnishing of the said annual return i.e., the due date as per Rule 80 of the respective CGST and SGST Rules. As per Rule 80(1) of the respective CGST and SGST Rules, the last date for 'furnishing annual return' in case of persons other than an Input Service Distributor, a person paying tax under Section 51 or Section 52, a casual taxable person and a non-resident taxable person shall furnish an annual return which may include a self-certified reconciliation statement, reconciling the value of supplies declared in the return furnished for the Financial Year, with the audited financial statement for every Financial Year electronically, within such time and in such form and in such manner as may be prescribed i.e., 31st Day of December following the end of the Financial Year in Form GSTR-9 - However, by Rule 80(1A) of the respective CGST and SGST Rules introduced/inserted with effect from 29.12.2021 vide Notification No.40/2021- CT dated 29.12.2021, for the Financial Year 2020-2021, the annual return was to be furnished on or before the 28th day of February, 2022. Admittedly, the Petitioner has not filed the return till date in view of the statutory period of limitation prescribed under Section 47 of the respective GST Acts read with Rule 80(1A) of the respective GST Rules. However, the law on the subject is also clarified by the Hon'ble Supreme Court wherein it has been held that penalty should not be levied for technical and venial breach of the provisions. As far as late fee is concerned, the demand of late fee under Section 47 of the respective GST enactments is also venial in nature when Sub-Clause (2) to Section 47 is invoked. Considering the fact that the Petitioner is otherwise willing to file a return, this Court is inclined to quash the impugned Order dated 10.02.2025 and remit the case back to the Respondent to pass a fresh order to levy lesser penalty after giving due notice to the Petitioner - petition disposed off. ISSUES PRESENTED AND CONSIDERED 1. Whether the authority lawfully invoked Section 47(2) of the CGST/SGST enactments to impose a higher penalty instead of the statutory late fee where the authority itself concluded that only the late fee of Rs.100 per day would be payable. 2. Whether an annual return for Financial Year 2020-2021 could be validly furnished after the statutory cut-off under Section 44 read with Rule 80(1) and the Exceptionary Rule 80(1A) as inserted by Notification No.40/2021-CT, and the legal consequence of the statutory time-bar on levy of penalties. 3. Whether the impugned order violated principles of natural justice by proceeding without providing an opportunity of personal hearing or adequate notice before imposing a higher penalty, having regard to prior judicial treatment of portal notices and hearing requirements. 4. Whether, as a matter of principle, a higher penalty or harsh consequence may be sustained for a venial/technical breach of return-filing obligations, in light of Supreme Court authority on penal relief for technical breaches. ISSUE-WISE DETAILED ANALYSIS Issue 1 - Authority's invocation of Section 47(2) to impose higher penalty when only late fee is indicated by law Legal framework: Section 47(2) of the CGST/SGST enactments prescribes a late fee of Rs.100 per day subject to a maximum of one quarter percent of turnover for failure to furnish the return required under Section 44 by the due date. The provision is specific in both rate and ceiling for late fee liability. Precedent Treatment: The Court referred to domestic High Court decisions dealing with similar administrative acts and to the Supreme Court's principle that penal consequences should not be imposed for technical or venial breaches. Interpretation and reasoning: The Court noted an internal inconsistency in the impugned order - the authority itself concluded that the petitioner 'at best' was liable to the statutory late fee but nevertheless invoked Section 47(2) to impose a higher penalty. Given the clear statutory prescription of Section 47(2), the authority cannot, by exercise of discretion in the impugned order, expand the quantum or nature of liability beyond what the statute provides without lawful basis. The Court treated the late fee under Section 47(2) as venial when invoked in the circumstances of delayed annual return filing. Ratio vs. Obiter: Ratio - An authority cannot impose a penalty greater than that prescribed under Section 47(2) where the facts disclose only a failure to furnish the return by due date and the authority itself recognizes the statutory late fee as applicable. Obiter - observations on general administrative propriety and wording of orders. Conclusions: The imposition of a higher penalty under Section 47(2) was unsustainable and required interference; the impugned order was quashed on this ground and remitted for fresh consideration consistent with the statutory late fee scheme and principles outlined by the Court. Issue 2 - Time-bar to furnishing annual return for FY 2020-2021 and its consequence Legal framework: Section 44(1) requires furnishing annual returns; Section 44(2) (as explained) precludes acceptance of an annual return after the expiry of the prescribed period. Rule 80(1) prescribes 31 December following the financial year as the default due date for GSTR-9; Rule 80(1A) (inserted by Notification No.40/2021-CT dated 29.12.2021) expressly set the last date for FY 2020-2021 as 28.02.2022, and the Court observed that the statutory limitation for filing expired on 28.02.2025 for the time-bar purpose invoked by the revenue. Precedent Treatment: No precedent was overruled; the Court relied on the statutory text of Rule 80(1A) and the limitation scheme in Section 44(2) to conclude the period for filing had expired. Interpretation and reasoning: The Court examined the temporal interplay between Section 44(2) and Rule 80(1A). It accepted that the petitioner had not filed the return and that, in law, the period to file the annual return had lapsed in accordance with the Rules and the limitation provision. That factual and legal finding informed the remedies and relief ordered - the Court did not permit late filing beyond statutory limitation but focused on appropriate levy of penalty and adherence to procedural fairness in reassessment. Ratio vs. Obiter: Ratio - The statutory bar in Section 44(2) read with Rule 80(1A) precluded acceptance of the annual return beyond the prescribed period for FY 2020-2021, and the authority must take that limitation into account when framing any demand. Obiter - none beyond the direct application. Conclusions: The Court recognized the statutory limitation as a constraint on filing but found that the limitation did not justify imposition of a higher penalty beyond the late fee nor dispense with the requirement of reasoned notice and opportunity before imposing monetary consequences. Issue 3 - Natural justice: adequacy of notice and opportunity of personal hearing before imposing higher penalty Legal framework: Principles of natural justice require reasonable notice and an opportunity of hearing before adverse administrative orders imposing penalties are passed. Judicial precedents have emphasized personal hearing where a show cause notice is not effectively communicated or where portal notices alone may not suffice without clarity of access. Precedent Treatment: The Court relied on a prior High Court order dealing with a similar circumstance where the absence of personal hearing and reliance solely on portal communication led to setting aside the impugned order and remand, with directions to issue fresh notice, provide opportunity of hearing, and consider payment conditions. Interpretation and reasoning: The Court observed that the impugned order did not afford the petitioner adequate opportunity to establish its case and that the authority proceeded to impose a higher monetary penalty without following the hearing norms that secure fairness. Even where statutory limitation precludes filing, imposition of penalty requires careful application of natural justice - a portal upload or administrative conclusion alone is insufficient where consequences are penal in nature. Ratio vs. Obiter: Ratio - Administrative orders imposing or enhancing monetary penalties must be preceded by adequate notice and an opportunity of personal hearing; failure to do so will amount to a breach of natural justice warranting remand. Obiter - suggested procedural steps (e.g., 14 days' notice, personal hearing) drawn from analogous prior orders. Conclusions: The impugned order was quashed and the matter remitted to the authority with directions to give due notice and an opportunity of personal hearing before passing a fresh order assessing penalty in accordance with law. Issue 4 - Principle against imposing severe penalties for technical/venial breaches Legal framework: Established Supreme Court principle that penal consequences should not be imposed for technical or venial breaches; penal statutes and demands require proportionality and reasoned application. Precedent Treatment: The Court expressly applied the Supreme Court's principle from Hindustan Steel Limited (referred) that penalties should not be levied for technical and venial breaches. Interpretation and reasoning: The Court characterized the demand under Section 47(2) invoking late fee as venial in the circumstances of delayed annual return filing (particularly where the authority itself considered only the late fee applicable). Applying the principle of proportionality and the requirement for penal tolerance of trivial breaches, the Court concluded that a lesser penalty consistent with Section 47(2) and the Supreme Court's guidance should be the norm unless aggravating factors justify otherwise. Ratio vs. Obiter: Ratio - Penalties for late filing under the late fee provision are to be treated as venial where no aggravating conduct is established; the authority must apply the Supreme Court's principle and avoid disproportionate penal measures. Obiter - commentary on administrative temper and remedial directions for reassessment. Conclusions: The Court directed quashing of the impugned order and remitted the matter for reconsideration to levy a lesser penalty after providing notice and hearing, mandating that the authority apply the principle that penal consequences should not be imposed for mere technical/venial breaches. Relief and Practical Directives (as part of reasoning/conclusion) The Court quashed the impugned order imposing higher penalty and remitted the matter to the authority to pass a fresh order: (a) after giving due notice to the affected person, (b) affording an opportunity of personal hearing, and (c) applying the statutory scheme of Section 47(2) and the Supreme Court principle disfavoring harsh penalties for technical breaches, with a view to levy a lesser penalty appropriate to the facts and law.